India Corruptino Study 2008

India Corruption Study - 2008
India Corruption Study - 2008

With Special Focus on BPL Households
Study Designed and Conducted by
Centre for Media Studies

Research House, Community Centre, Saket, New Delhi - 110 017 Phone: 011-2685 1660, 2685 6429, Fax: 011-2696 8282 E-mail: info@cmsindia.org, Website: www.cmsindia.org
Issued by TRANSPARENCY INTERNATIONAL INDIA

Qr. No. 4, Lajpat Bhawan, Lajpat Nagar - IV, New Delhi - 110 024 Phone: 011-2646 0826, 2922 4519, Telefax: 011-2646 0825 E-mail: info@transparencyindia.org, tiindia.newdelhi@gmail.com Website: www.transparencyindia.org
Disclaimer: The material provided in this report is original. Every effort has been made to ensure
accuracy, but the publisher, printer or author will not be held responsible for any inadvertent error(s). In case of any dispute, all legal matters to be settled under Delhi Jurisdiction only. We make no express or implied warranty regarding any information contained herein. TI India and CMS have made diligent effort to give credit to the source of the material cited here in the text.
Published by:
Transparency International India, Lajpat Bhawan, Lajpat Nagar IV, New Delhi - 110 024
2008 Copyright: Transparencey International India Suggested Contribution: Rs.1000/-
Typesetting and Printing at: St. Joseph Press, New Delhi-110 020, Mobile: 9999891207 E-mail: stjpress@yahoo.co.in
Contents
Foreword Preface Acknowledgements and Donors Abbreviations Summary 1. 2. 3. 4. 5. 6. About The Study Coverage and Methodology Estimation of Bribe Services Ranked Relative Position of States on Corruption Follow-up to India Corruption Study Part - I: National Report National Report I. II. 1.0 1.1 1.2 1.3 1.4 1.5 1.6 1.7 1.8 1.9 1.10 1.11 1.12 1.13 Introduction An Overview Part - II: Perception and Experience of Corruption: Service-wise Public Distribution System Introduction Interaction with PDS Service Purpose of Interaction Difficulties Faced During Interactions Perception about PDS Service Measures Taken to Improve Service Experience of Corruption Reason for Paying Bribe Route of Bribe Payment Estimation of Bribe Amount Where Do States Stand? Service Providers Perspective Suggestions to Improve PDS Service Delivery 37 37 39 40 41 41 42 42 43 44 45 45 46 47 09 10 11 xvii xviii xx xxii 03 03 03 04 04 04 05
vi
India Corruption Study 2008 Hospital Services Introduction Interaction with Health Services Purpose of Interaction Difficulty Faced During Interaction Perception about Hospital Services Measures to Improve Service Experience of Corruption Reason for Paying Bribe Route of Bribe Payment Estimation of Bribe Amount Where Do States Stand? Service Providers Perspective Suggestions for Improving Hospital Services School Education Introduction Interaction with School Education Service Purpose of Interaction Difficulty Faced During Interaction Perception about School Education Service Measures Taken to Improve Service Experience of Corruption Reasons for Paying Bribe Route for Bribe Payment Estimation of Bribe Amount Where Do the States Stand? Service Providers Perspective Suggestions to Improve School Education Services Electricity Service Introduction Interaction with Electricity Service Purpose of Interaction Difficulty Faced During Interaction Perception about Electricity Service Measures Taken to Improve Service 56 56 57 57 58 58 58 59 60 60 60 61 61 62 70 70 71 72 73 73 74 74 75 76 76 77 77 78 87 87 88 89 90 90 91
2.0 2.1 2.2 2.3 2.4 2.5 2.6 2.7 2.8 2.9 2.10 2.11 2.12 2.13 3.0 3.1 3.2 3.3 3.4 3.5 3.6 3.7 3.8 3.9 3.10 3.11 3.12 3.13 4.0 4.1 4.2 4.3 4.4 4.5 4.6
Contents 4.7 4.8 4.9 4.10 4.11 4.12 4.13 4.14 5.0 5.1 5.2 5.3 5.4 5.5 5.6 5.7 5.8 5.9 5.10 5.11 5.12 5.13 6.0 6.1 6.2 6.3 6.4 6.5 6.6 6.7 6.8 6.9 6.10 6.11 6.12 6.13 Experience of Corruption Reason for Paying Bribe Route of Bribe Payment Estimation of Bribe Amount Where Do the States Stand? Service Providers Perspective Suggestions to Improve Electricity Services Exemplary Initiatives - Delhi Water Supply Services Introduction Interaction with Water Service Purpose of Interaction Difficulty Faced During Interaction Perception about Water Supply Service Measures Taken to Improve Service Experience of Corruption Reason for Paying Bribe Route of Bribe Payment Estimation of Bribe Amount Where Do the States Stand? Service Providers Perspective Suggestions to Improve Water Supply Services National Rural Employment Guarantee Scheme (NREGS) Introduction Interaction with NREGS Purpose of Interaction Difficulty Faced During Interaction Perception About NREGS Measures Taken to Improve Service Experience of Corruption Reason for Paying Bribe Route of Bribe Payment Estimation of Bribe Amount Where Do the States Stand? Service Providers Perspective Suggestions to Improve NREGS Services
vii
92 92 93 93 94 94 95 96 98 98 100 101 102 102 103 103 104 105 105 105 106 107 109 109 110 110 111 112 112 114 114 115 116 116 117 119
viii
India Corruption Study 2008 Land Records & Registration Service Introduction Interaction with the Land Related Service Purpose of Interaction Difficulty Faced During Interaction Perception about Land Related Service Measures Taken to Improve Service Experience of Corruption Reasons for Paying Bribe Route of Bribe Payment Estimation of Bribe Amount Where Do the States Stand? Service Providers Perspective Suggestions to Improve Land Records & Registration Services Forest Service Introduction Interaction with Forest Service Purpose of Interaction Difficulty Faced During Interaction Perception about Forest Department Measures Taken to Improve Service Experience of Corruption Reasons for Paying Bribe Route of Bribe Payment Estimation of Bribe Amount Where Do the States Stand? Service Providers Perspective Suggestions to Improve Forest Services Housing Service Introduction Interaction with Housing Service Purpose of Interaction 120 120 121 121 122 123 123 124 125 126 126 127 128 129 131 131 132 133 134 134 135 135 136 136 136 137 138 138 140 140 142 143
7.0 7.1 7.2 7.3 7.4 7.5 7.6 7.7 7.8 7.9 7.10 7.11 7.12 7.13 8.0 8.1 8.2 8.3 8.4 8.5 8.6 8.7 8.8 8.9 8.10 8.11 8.12 8.13 9.0 9.1 9.2 9.3
Contents 9.4 9.5 9.6 9.7 9.8 9.9 9.10 9.11 9.12 9.13 10.1 10.2 10.3 10.4 10.5 10.6 10.7 10.8 10.9 Difficulty Faced During Interaction Perception about Housing Service Measures Taken to Improve Service Experience of Corruption Reasons for Paying Bribe Route of Bribe Payment Estimation of Bribe Amount Where Do the States Stand? Service Providers Perspective Suggestions to Improve Housing Services Introduction Interaction with Banking Service Purpose of Interaction Difficulties Faced in During Interaction Perception about Banking Services Measures Taken to Improve Service Experience of Corruption Reason for Paying Bribe Route of Bribe Payment
ix
144 144 145 145 146 147 147 147 148 149 151 151 152 152 153 154 155 155 155 156 156 157 158 158 160 160 161 161 162 162 163 164 165
10.0 Banking Services
10.10 Estimation of Bribe Amount 10.11 Where Do the States Stand? 10.12 Service Providers Perspective 10.13 Suggestions to Improve Banking Services 11.0 Police 11.1 11.2 11.3 11.4 11.5 11.6 11.7 11.8 Introduction Interaction with Police Service Purpose of Interaction Difficulty Faced During Interaction Perception about Police Service Measures Taken to Improve Service Experience of Corruption Reasons for Paying Bribe
India Corruption Study 2008 Route of Paying Bribe 165 166 167 168 169
11.9
11.10 Estimation of Bribe Amount 11.11 Where do the States Stand? 11.12 Service Providers Perspective 11.13 Suggestions to Improve Police Services
Part - III: Perception and Experience of Corruption: State-wise

1.0 1.1 1.2 1.3 1.4 1.5 1.6 1.7 1.8 1.9 2.0 2.1 2.2 2.3 2.4 2.5 2.6 2.7 2.8 2.9 2.10 3.0 3.1 3.2 3.3 3.4 3.5 3.6 Andhra Pradesh About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Relative Positioning of Services Service Providers Perspective RTI & Citizens Charter Assam About the State General Perception about Corruption Interaction with Public Services Multiple Visits Perception about Services Grievance Redressal Mechanism Incidence of Corruption Service-wise Positioning Service Providers Perspective RTI & Citizens Charter Bihar About the State General Perception about Corruption Interaction with Public Services Perception About Services Grievance Redressal Mechanism Incidence of Corruption 187 187 187 189 190 192 192 194 194 195 197 197 198 199 200 200 201 202 204 205 206 208 208 208 210 212 213 213
Contents 3.7 3.8 3.9 3.10 4.0 4.1 4.2 4.3 4.4 4.5 4.6 4.7 4.8 4.9 5.0 5.1 5.2 5.3 5.4 5.5 5.6 5.7 5.8 5.9 6.0 6.1 6.2 6.3 6.4 6.5 6.6 6.7 6.8 6.9 Service-wise Positioning Service Providers Perspective RTI & Citizens Charter Source of Awareness About RTI Chhattisgarh About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Relative Positioning of Services Service Providers Perceptive RTI & Citizens Charter Delhi About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Service-wise Positioning Service Providers Perception RTI & Citizens Charter Goa About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Service-wise Positioning Service Providers Perspective RTI & Citizens Charter
xi
215 216 216 217 218 218 218 220 221 223 223 226 226 227 229 229 229 231 232 234 234 235 237 238 240 240 240 242 243 245 245 247 247 248
xii
India Corruption Study 2008 Gujarat About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Relative Positioning of Services Service Providers Perspective RTI & Citizens Charter Haryana About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Relative Positioning of Services Service Providers Perspective RTI & Citizens Charter Some E-governance Initiatives Himachal Pradesh About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Relative Positioning of Services Service Providers Perspective RTI & Citizens Charter About the State General Perception about Corruption Interaction with Public Services Perception about Services 250 250 250 251 253 254 255 257 257 259 260 260 260 261 262 263 264 266 266 267 268 270 270 270 272 273 274 275 277 277 278 280 280 280 282 283
7.0 7.1 7.2 7.3 7.4 7.5 7.6 7.7 7.8 7.9 8.0 8.1 8.2 8.3 8.4 8.5 8.6 8.7 8.8 8.9 8.10 9.0 9.1 9.2 9.3 9.4 9.5 9.6 9.7 9.8 9.9 10.1 10.2 10.3 10.4
10.0 Jammu & Kashmir
Contents 10.5 10.6 10.7 10.8 10.9 11.1 11.2 11.3 11.4 11.5 11.6 11.7 11.8 11.9 12.1 12.2 12.3 12.4 12.5 12.6 12.7 12.8 12.9 13.1 13.2 13.3 13.4 13.5 13.6 13.7 13.8 13.9 Grievance Redressal Mechanism Incidence of Corruption Relative Positioning of Services Service Providers Perspective RTI & Citizens Charter About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Relative Positioning of Services Service Providers Perspective Awareness about RTI and Citizens Charter About the Sate General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Relative Positioning of Services Service Providers Perspective RTI & Citizens Charter About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Relative Positioning of Services Service Providers Perspective RTI & Citizens Charter
xiii
284 285 287 287 288 290 290 290 292 293 294 295 297 297 298 300 300 300 301 303 304 305 307 307 308 310 310 310 312 314 315 315 318 318 318
11.0 Jharkhand
12.0 Karnataka
13.0 Kerala
xiv
India Corruption Study 2008 321 321 321 323 324 326 326 329 329 330 332 332 332 334 335 336 337 339 339 340 342 342 342 343 345 346 347 349 350 351 352 353 353 353 355
14.0 Madhya Pradesh 14.1 14.2 14.3 14.4 14.5 14.6 14.7 14.8 14.9 15.1 15.2 15.3 15.4 15.5 15.6 15.7 15.8 15.9 16.1 16.2 16.3 16.4 16.5 16.6 16.7 16.8 16.9 About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Relative Positioning Services Service Providers Perspective RTI & Citizens Charter About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Relative Positioning of Services Service Providers Perspective RTI & Citizens Charter About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Relative Positioning of Services Service Providers Perception RTI & Citizens Charter
15.0 Maharashtra
16.0 North-East States
16.10 Source of Awareness 17.0 Orissa 17.1 17.2 17.3 About the State General Perception about Corruption Interaction with Public Services
Contents 17.4 17.5 17.6 17.7 17.8 17.9 18.1 18.2 18.3 18.4 18.5 18.6 18.7 18.8 18.9 19.1 19.2 19.3 19.4 19.5 19.6 19.7 19.8 19.9 20.1 20.2 20.3 20.4 20.5 20.6 20.7 20.8 20.9 Perception about Services Grievance Redressal Mechanism Incidence of Corruption Relative Positioning of Services Service Providers Perspective RTI & Citizens Charter About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Relative Positioning of Services Service Providers Perspective RTI & Citizens Charter About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Relative Positioning of Services Service Providers Perspective RTI & Citizens Charter About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Service-wise State Positioning Service Providers Perspective RTI & Citizens Charter
xv
356 358 358 361 361 361 364 364 364 365 367 368 369 371 371 371 373 373 373 374 376 377 378 380 380 381 383 383 383 385 386 387 388 390 390 391
18.0 Punjab
19.0 Rajasthan
20.0 Tamil Nadu & Pondicherry
xvi
India Corruption Study 2008 393 393 393 395 396 397 398 400 400 402 403 403 403 405 406 407 408 410 410 410 412 413 413 413 414 415 417 417 419 420 420 421
21.0 Uttarakhand 21.1 21.2 21.3 21.4 21.5 21.6 21.7 21.8 21.9 22.1 22.2 22.3 22.4 22.5 22.6 22.7 22.8 22.9 About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Incidence of Corruption Relative Positioning of Services RTI & Citizens Charter Service Providers Perspective About the State General Perception about Corruption Interaction with Public Services Perception about Service Grievance Redressal Mechanism Incidence of Corruption Relative Positioning of Services Service Providers Perspective RTI & Citizens Charter
22.0 Uttar Pradesh
22.10 Initiatives in Uttar Pradesh 23.0 West Bengal 23.1 23.2 23.3 23.4 23.5 23.6 23.7 23.8 23.9 About the State General Perception about Corruption Interaction with Public Services Perception about Services Grievance Redressal Mechanism Type of Corruption Relative Positioning of Services Service Providers Perspective RTI & Citizens Charter
23.10 Initiatives in West Bengal
Foreword
his is the third, in a series of surveys, which TI India has done to measure the extent of petty corruption. The first was done on a regional basis in 2002. It elucidated a certain amount of interest and awareness but there was no follow up. The second was done for 20 major states, which were graded, from the least corrupt Kerala to the most corrupt Bihar in 2005. TI India went about conducting workshops in major state capitals of the six most corrupt states to persuade the government functionaries, Civil Society Organisations and the media to adopt methodologies to contain this type of petty corruption. Jammu & Kashmir has been the only state which passed a bill to attach the assets of corrupt public officials when there is prima-facie evidence against them, pending investigations and prosecutions. Two other notable features, which came out in this survey, were that petty corruption was markedly less when technology was used for delivery of the service, and when Civil Society Groups were involved in assisting citizens. This third attempt India Corruption Study 08 is TI Indias most ambitious survey done in collaboration with the Centre for Media Studies. It covers all 31 States and Union Territories and is focused on the poorest and rural areas. It includes below the poverty line people in both rural areas and urban slums. Our PhaseII and PhaseIII of this endeavour would include training of grass-root level workers and activists and arming them with information about the extent of the corruption in different areas and the use of Right to Information Act to empower the poorest to stand their ground and not pay bribes while demanding and accessing the services they are entitled to. We hope to provide each BPL household a passbook of entitlement and keep these updated periodically, to fight poverty and improve the lot of the poorest in the country. India Corruption Study 2005 covered only 20 major States. Our countrymen in North Eastern States expressed their unhappiness at corruption not being surveyed in these States. Since India Corruption Study 2008 focuses on the BPL citizens, where ability to bribe is limited, the figures computed are likely to appear more modest than those, which would have been discovered if all sections including the middle class had been surveyed. We are grateful to our collaborators, Centre for Media Studies, and supporters like Concern Worldwide, ONGC, Coal India, SAIL, Mahindra & Mahindra, Dolphin Offshore Enterprises and others for financial support in this most ambitious project of Transparency International India. The financial support provided by others will be acknowledged in our quarterly newsletter in addition to the official receipt. It is pertinent to mention that TI India is a registered charity and contributions to our projects are exempted under Section 80 (G) of the Income Tax Act. R.H. TAHILIANI CHAIRMAN Transparency International India
Preface
n 2000, when CMS first initiated these annual studies on corruption involving citizens, some people wondered why we were flittering our resources, since corruption had become a fact of life in India and was beyond redemption. Even when CMS studies in 2003 and 2005 showed that corruption involving citizens had declined, however marginally, in certain public services, those who rely more on perception were skeptical. Planning Commission had in its Xth Plan Report noted that Corruption is most endemic and entrenched manifestation of poor governance in Indian society, so much so it has almost become an accepted reality and a way of life. In the XIth Five Year Plan too, it somewhat reiterated that good governance is not possible without addressing corruption in its various manifestations, especially in the context of basic services. The ultimate proof of inclusive growth, for bridging the divides and equity goals is the extent of access to essential services by those below the poverty line. For inadequate access means denying them an opportunity to share the benefits of national growth. Also because the poor are disproportionately affected by corruption since they depend more on public services. India Corruption Studies have been concerned precisely on this aspect, in the context of the basic and need-based public services that a citizen frequently avails. A unique feature of CMS methodology has been to recognize that corruption has two sides, each sustaining the other and reinventing itself. One is perception, the dimension which is relatively easy to talk about. The second is actual experience of corruption. Perception and experience are often two separate issues requiring separate, but parallel efforts. That is what CMS PEE model is all about. This model has brought out the gap between Perception and Experience in the context of citizen. The other aspect is Estimation of total money involved in corruption. It is arguably as yet another tool to sensitize the nation about its seriousness so that corruption is not seen as high-return-low-risk activity. Perceptions are accumulated impressions, based on ones own immediate and past experience and those of neighbors/ friends. More importantly, perceptions these days to a large extent are also molded on the way corruption is portrayed and hyped, particularly, in visual media. Experience, on the other hand, is where a citizen or household does not get the service as a matter of course, but as a discretion and on exchange of certain money as bribe for attending to or deprived of access for not paying bribe or having to use a contact to influence discretionary role. This study also provides a benchmark for the extent of awareness about RTI Act among BPL households across the country and their use of the three-year-old Act.
Preface
xix
TII-CMS India Corruption Study2008 should be viewed as a tool to sensitize the larger public, concerned stakeholders and prompt Governments and civil society groups to take locally relevant initiatives. The report hopefully helps put social activism on the right course and the Governments on a competitive course to take initiatives for good governance and inclusive growth. Our experience with the previous India Corruption Studies, particularly the 2005 one, where we ranked the States for their overall level of corruption, was a mixed one. But consultations with experts and social activists convinced us that it is better to group States on levels of corruption than ranking them individually. Hopefully, this would bring more seriousness nationally and in taking up systemic solutions for serving the poor more reliably. Dr. N. Bhaskara Rao CHAIRMAN Centre For Media Studies (CMS)
Acknowledgements
This study acknowledges the valuable insights and suggestions given by the following eminent experts and social activists (in alphabetical order) during the Consultation Series. Shri Ajit Bhattacharjea, Senior Editor Shri Ajoy Bagchi, Executive Director, The Peoples Commission on Environment and Development India Shri Alok Swarup, Vigilance Director, Delhi Development Authority Prof. Anand Kumar, Centre for the Study of Social Systems, Jawaharlal Nehru University, New Delhi Shri Anil Padmanabhan, Chief of Bureau, Mint Ms. Aruna Roy, Social Activist Shri Arvind Kejiriwal, Parivartan Shri Balwinder Singh, former City Police Commissioner, Hyderabad Dr. D.P. Kaushik, Associate Director, Rajiv Gandhi Foundation, New Delhi Shri D.R. Kaarthikeyan, former Director, CBI Shri Harsh Mander, IAS (Retd) Prof. Jaya Indiresan, Consultant, UGC Ms. Maja Daruwala, Director, Commonwealth Human Rights Initiative Dr. M. Aslam, Professor, Rural Development, School of Continuing Education, IGNOU Prof. M.M. Ansari, Information Commissioner, Central Information Commission, GoI Dr. N.C. Saxena, Consultant UNICEF and former Member, Planning Commission, GoI Shri N. Innaiah, Chairman, Centre for Inquiry India Shri Naveen S., Social Researcher Dr. O.P. Kejariwal, Information Commissioner, Central Information Commission, GoI Shri P.L. Sanjeev Reddy, IAS (Retd), Former Director, Indian Institute of Public Administration (IIPA) Prof. P.V. Indiresan, former Director IIT, Chennai Shri Prashant Bhushan, Senior Advocate, Supreme Court of India Shri Prityush Sinha, Central Vigilance Commissioner, CVC,GoI
Acknowledgements Dr. Rajiv Sharma, IAS, Director General, Centre for Good Governance, Hyderabad
xxi
Shri Rahul Sarin, Addl. Secretary (S&V), Ministry of Personnel & Public Grievances, and Pension, GoI Ms. Ranjana Kumar, Vigilance Comissioner, CVC GoI Shri Raju Narisetti, Managing Editor, Mint Shri Sanjay Parikh, Senior Advocate, Supreme Court of India Shri Sudhir Kumar, Vigilance Comissioner, CVC, GoI Shri Venkatesh Nayak, Commonwealth Human Rights Initiative Major Gen. (Retd.) Vinod Saighal Shri. Wajahat Habibullah, Chief Information Commissioner, Central Information Commission, GoI Prof. Yogendra Yadav, Senior Fellow, Centre for the Study of Developing Societies
DONORS
CONCERN WORLDWIDE Camden Street, Doublin 2 (Ireland) India Office: A/7, Ashok Nagar, Unit -II , Bhubneshwar-751009, Orissa, (India) OIL & NATURAL GAS CORPORATION LTD. (ONGC) 9th Floor, Jeevan Bharati Building, Tower II, 124, Indira Chowk, New Delhi - 110 001 MAHINDRA & MAHINDRA LTD. Mahindra Towers, 5th Floor, Worli, Mumbai 400 018 DOLPHIN OFFSHORE ENTERPRISES (INDIA) LTD. LIC Building, Plot 54, Sector 11, CBD Belapur (E), Navi Mumbai 400 614 STEEL ATHOURITY OF INDIA LTD. (SAIL) Ispat Bhawan, Lodhi Road, New Delhi- 110 003 COAL INDIA LIMITED Coal Bhawan, 10, Netaji Subhas Road, Kolkata 700 001 MAHANADI COALFIELDS LIMITED At/P.O. Jagruti Vihar, Burla, Dist-Sambalpur 768020 (Orissa)
Abbreviations
AAY AY APL ARWSP BPL CAG CDB CEB DPEP EDI EGS&AIE FPS KYP MWS NAP NDWM NUEPA PEE RoR RGGVY RGNDWM SC ST URP VA VEC WUA : : : : : : : : : : : : : : : : : : : : : : : : : : : Annatodaya Yojna Annapurna Yojna Above Poverty Line Accelerated Rural Water Supply Programme Below Poverty Line Comptroller & Auditor General Community Development Block Census Enumeration Blocks District Primary Education Programme Educational Development Index Education Guarantee Scheme and Alternative & Innovative Education Fair Price Shops Kutir Jyoti Programme Million Wells Scheme National Aforestation Programme National Drinking Water Mission National University of Educational Planning & Administration Perception, Experience and Estimation Record of Rights Rajeev Gandhi Grameen Vidutikaran Yojna Rajeev Gandhi National Drinking Water Mission Scheduled Caste Scheduled Tribes Uniform Reference Period Village Accountants Village Education Committee Water Users Association
About TI India
Transparency International India is a non profit organization that endeavors to work towards reduction in corruption by promoting and supporting transparent and ethical practices in government, raising awareness among people, planning policies to support Government for better delivery of public services, working towards reducing public corruption and combating political corruption. We pursue our mission through India Corruption Study, raising awareness among people about good governance, promoting Integrity Pact in public contracting and procurements awarding journalists for excellence in exposing corruption, engaging with other civil society organizations with parallel themes and bringing out publications.
WHAT WE DO
1. Promote Transparency and Accountability in Governance
By raising awareness among people, focusing on pillars of good governance Setting up camps and hand holding for people in rural areas for implementation of Right to Information, Social audit and citizens charter Improving procurement transparency in public sector undertaking through the adoption of Integrity Pact and monitoring the implementation By influencing Government policies By involving media
2. Working on Projects, Research and bringing out Publications

TII is engaged in the project Pehal Shasan Sudhar Ki Or, with a view to empowering those living below the poverty line (BPL). The project aims at improving governance in rural India by raising awareness among people about tools of good governance that will enable them to avail hassle-free public services. We conduct research on corruption in the country in different states and the problems people face in availing various government services. All these are published.
3. Educating Small Children

Catch them young! As a part of spreading awareness among children, we reach out to the various educational institutions and spread awareness among school children about evils of corruption, so they can inhabit a corruption free environment.
About CMS
CMS is registered under Societies Registration Act, 1860 since 1991. CMS is an independent, national level multi-disciplinary development research and facilitative body of eminent professionals nationally known for its advocacy initiatives. The Centre has been set up with an objective to tap and integrate various sources of information, analysis and initiate research towards a more informed decision. CMS activities include social, environmental and developmental issues. Since last two decades, CMS has several studies to its credit and has been involved in evolving appropriate strategies and social policy options as well as in evaluating their implications in the context of civil society. Today, CMS has emerged as an inter-disciplinary research group with wide interest and capability in the areas of social research, communication research, public opinion surveys and operation research. The centre emphasizes on research, monitoring, evaluation and advocacy for policy and planning. It also organizes dialogue and debate on important public issues, disseminates research findings to contribute to knowledge and understanding of society and thus helps in better-informed decision-making.
VISION
Research is not an end in itself, rather it is a means for change, the betterment of society and to promote equity in people.
MISSION
Going beyond the conventional concerns of research and analysis, CMS mission includes advocacy, planning, promoting peoples participation, facilitating interface between different sections of the society, and sensitizing the public on issues of national concern. The motto of CMS is objective information gathering and analysis which can contribute to a better society.
Summary
Summary
1. ABOUT
THE
STUDY
This India Corruption Study is unique. Unlike earlier annual surveys, this one for 2008 focused on BPL households, mostly in rural India. The coverage of this study includes all parts of the country. The study, like the earlier ones, is based on perception, experience and estimation(PEE) model where the scope is not only limited to perceptions about corruption in general, but perception in specific context of a service and, more importantly, actual experience of paying bribe by BPL households in availing one or more of the 11 selected public services. Depending on frequency of interaction, the eleven services are divided broadly into basic services (PDS, Hospital Service, School Education (up to 12th), Electricity Service and Water Supply Service) and need based services (Land Records/Registration, Housing Service, Forest, NREGS, Banking Service and Police Service (traffic and crime)). The study does not include operational irregularities in the system and even corruption that does not involve citizens directly. This round of India Corruption Study is designed and conducted by Centre For Media Studies (CMS) in collaboration with the Transparency International India (TII).
2. COVERAGE AND METHODOLOGY

The survey covered 22,728 randomly selected BPL households across the States. The fieldwork was conducted between November 2007 and January 2008. The concepts and methodology for the study were finalized after extensive consultations with experts and those familiar with the services covered. The methodology for the study involved household level sample survey, exit interviews at service delivery outlets, discussions with the concerned service providers in each case and observations on display of information at the service delivery points, etc. Large-scale surveys spread across States of varying performance and services of distinct and different characteristics, will not have same reliability when one looks at the data from a micro level of an individual State or service. Experienced investigators and researchers conducted the fieldwork after pilot testing of instruments and field orientation. The fieldwork was independently validated by sub-sample checks. About 150 investigators were engaged for collection of the field data and a dozen senior researchers were involved in quality control. The preliminary findings were further put through a series of extended consultations with experts. The analysis benefited from discussions with some 35 outside experts in all. The perceptions about corruption in the specific context of the 11 services include whether corruption is viewed as having increased or declined in the last one year and whether presence of any redressal provisions were noticed or not. Similarly, experience of corruption includes actual
India Corruption Study 2008
bribe paid or use of a contact in availing a service in the previous one year. In this process, the study also brings out the per centage of BPL households who could not avail the particular service as they could not pay bribe or they had no contact. Together, these three types indicate the total size of BPL households caught in the trap or affected by corruption while trying to avail the services. For example, over all, more than 40 per cent of the BPL households, who approached Police Service, Land and Housing Services in the previous one year, either (actually) paid bribe or used a contact. Relatively, higher per centage of people paid bribe in the case of need based services than in (the case of) basic services. Another interesting fact is that there is not much difference in the extent of corruption that BPL households experience in urban and rural areas.
3. ESTIMATION
OF
BRIBE
Based on the incidence of bribe paid by sample BPL households, an estimate is made for the total amount paid as bribe by BPL households in the country during the last one year in the eleven services. The total bribe amount involved in a year in BPL households availing the eleven services covered in this study is estimated as Rs. 8,830 million.
4. SERVICES RANKED
School Education (up to class XII and Government schools) among the 11 services studied stands last in the ranking that is the level of corruption is the lowest among all. But when one looks at this service individually, it is also entrenched with some corruption involving BPL households. That police service stood number one corroborates the general impression. The Land Records / Registration and House/Plot, which are specially tailored for BPL households, stand at two and three in the rank is a matter of concern. While the level and extent of corruption in Police service was high in all States, as if it is universal but the ranks of other services show variations across the states. Given the nature of need based services which are monopolistic or involve asset creation or volume, these services ranked high on corruption as compared to basic services.
Table 2: According to level of Corruption Ranking of Services
Services Police Land Records/ Registration Housing Water Supply Service NREGS Forest Rank 1 2 3 4 5 6 Services Electricity Health PDS Banking School Education (up to class XII) Rank 7 8 9 10 11
5. RELATIVE POSITION
OF
STATES
ON
CORRUPTION
This India Corruption Study, brought out that corruption involving citizens including BPL households, is all pervasive across the States and public services. No State or service is anywhere near zero corruption level. Nevertheless, taking the degree of variation from State-to-State and service-toservice, the States are grouped into four levels to explain the extent/level of corruption based on a weightage scheme Moderate, High, Very High and Alarming. This grouping and positioning of States is limited to interaction of BPL households in availing the eleven services covered in this study.
Summary
Table 3: Levels of Overall Corruption in States (involving BPL households)
(arranged in alphabetical order)
Levels of corruption States by size Big Alarming Assam, Bihar, Jammu & Kashmir, Madhya Pradesh, Uttar Pradesh Very High Karnataka, Rajasthan, Tamil Nadu High Chhattisgarh, Delhi, Gujarat, Jharkhand, Kerala, Orissa Moderate Andhra Pradesh, Haryana, Himachal Pradesh, Maharashtra, Punjab, Uttarakhand, West Benga Chandigarh, Mizoram, Pondichery, Tripura
Small/ UTs
Goa, Nagaland
Meghalaya, Sikkim
Arunachal Pradesh, Manipur
The grouping of States on corruption reflects relative position of States in the context of all eleven services. States under alarming group calls for serious introspection, restructuring and even repositioning of certain services meant for BPL households. In Himachal Pradesh the level of corruption is moderate in all the 11 services studied whereas in the case Madhya Pradesh and Assam corruption level in all the 11 services was high or very high or alarming. In Delhi and West Bengal, for example, corruption level was moderate in most services surveyed. Among smaller States (North-East and UTs), in Nagaland and Goa, most of the 11 services had high or very high or alarming level of corruption. Whereas it was moderate in Chandigarh and Tripura.
6. FOLLOW-UP
TO
INDIA CORRUPTION STUDY
Some of you might ask. What next, after the study? TI-Indias role as a Civil Society Organization does not end here. We have the public mandate and potential to work towards improving the lives of the poorest by providing them the impetus, force and leadership to wage fight against corruption by increasing transparency and ensuring accountability of Government towards people. Keeping this in mind, the next step that TI-India (TII) will conduct a consultation workshop with different stakeholders in order to identify priority actions by TII. This will help those Below Poverty Line (BPL) people to have greater access to these services with fewer problems. The workshop will also discuss TIIs efforts to improve Governance in rural areas, making government more accountable. This is possible by making people aware of their rights and working towards l increasing transparency in the government services. To achieve this it is necessary that people at the grass roots are familiarized and made aware of their rights so that in turn government is made more accountable to people. The second step after the workshop is organizing training and capacity building of various stakeholders in various tools of good Governance such as RTI Act, Social Audit, Citizens Charter and e-Governance.
TII project team will visit different States and hold training sessions for NGOs, CBOs, government and local government officials, school teachers, health workers, opinion leaders, with the help of experts, in order to enable them to understand the rationales and methods of good governance. It is expected that they in turn will play a useful role in sensitizing people to seek information, drawing on the Right to Information mandate that can result in an ongoing watch on public authorities. Transparent standards for service delivery can be introduced through Citizens Charter. Social Audit will be used to hold the government accountable to people. Similarly, State Governments will be encouraged to use Information Communication Technology (ICT) for disseminating information and people will be sensitized and encouraged to use it for faster and smoother delivery of services. The third dimension of the project is Advocacy in order to familiarize, sensitize and raise awareness among the people, with a view to empower them. NGOs, CBOs, opinion leaders, Self Help Groups and other stakeholders who have been trained by TII project team on tools of good governance will do this. The main focus of sensitization and awareness raising would be to identify community participation and collaborative activities that would help government to understand the specific needs of the community. Participatory activities includes activities such as holding community meetings to understand needs and acquire feedback at the preliminary level, camps at village, block and district level, capacity building of government and local government officials and targeted beneficiaries, effective use of communication materials in local language and street plays to involve children women and underprivileged groups and use of community radio. An important outcome of the project would be greater involvement and participation of women and disadvantaged sections in local self-governance. Also there would be increased responsiveness from district and block administration towards Gram sabha (primary level meeting of local selfgovernment) making them more accountable to people. Further, local selfgovernment such as Panchayat will be more actively involved in bottom-up planning and monitoring the social sector programme. The Project will lay special emphasis on tribes, marginalized communities and women. Attention will also be paid to identify needs and capacity building of TII and its state chapters to effectively carry out its initiatives to enhance transparency and accountability in various government departments in India.
Part-I National Report
National Report
SOME HIGHLIGHTS
OF THE
STUDY
This round of India Corruption Study confirms a wide gap between perception and actual experience about corruption in public services irrespective of recent measures to improve service delivery and curb corruption. About one-third of BPL households, across the country paid bribes in the last one year to avail one or more of the eleven public services covered in the study. It shows the poor are not spared even in the case of targeted programmes. In the last couple of years, several initiatives have been taken to improve delivery of public services. Citizens Charters, RTI Act, Social Audit, e-Governance measures, including the massive computerization, etc. are among some of them. The benefits of these measures have not substantially percolated to the poor as yet. The percentage of BPL households, who paid bribes, to avail the particular services covered in the last one year ranges from 3.4 per cent in the case of School Education to as high as 48 per cent in the case of Police Service. About four per cent of BPL households used a contact in the previous year to avail such services as PDS, School Education, Banking Services; and as high as 10 per cent in the case of Housing and Land Records/Registration. Nearly two services, as to services. not obtain reasons. per cent of BPL households could not avail PDS, School Education and Electricity they could not pay bribe or alternately had no contact or influence to get access In fact, in the last one year, more than four per cent of BPL households could Land Records/Registration, NREGS, Housing and Police Service for the same
The fact that most of the poor who claimed to have paid bribe - did so directly to one or the other functionary within the delivery set up, is a revelation particularly because quite often the reasons for repeat visits were absence of staff and/or their apathetic attitude. This lends strength to the perception that the poor are not a priority even in the case of some of the programmes designed for them. Procedural delays are the other reasons that make BPL households vulnerable to paying bribe or depriving them from availing the service. There is hardly any evidence in this study that egovernance initiatives taken in different States, involving some of the services, made much difference in the levels of perception about corruption or even actual experience.
10
India Corruption Study 2008 Police and Land Records/ Registration services stand out for their alarming level of corruption involving BPL households among the eleven services covered in this study. Whereas, School Education (up to class XII) and Banking Service (including at Post Offices) comes out with moderate level of corruption but also implying that even these services are not free from corruption. As regards the relative position of States on corruption in availing the eleven public services by BPL households, states of Assam, J & K, Bihar, Madhya Pradesh and Uttar Pradesh have an alarming level of corruption, while Himachal Pradesh, Uttaranchal, Delhi and Punjab have moderate level. The important fact is that the poor deserve better attention in getting access to public services, particularly some of the targeted programmes meant specially for them, than they seem to be getting now. Despite claims and some initiatives for redressal of complaints in services like Police, they have not helped either in reducing perceptions nor experiences of BPL households. However, some dent seems to have been made in the case of Schools and Banking services. Overall, a higher percentage of BPL households, who tried to avail these services, found that corruption had increased in the last one year, particularly in the case of Police, Land Records & Registration and Housing services. The percentage of households having income-level of BPL category not having a BPL Card was relatively high in North-Eastern States, West Bengal and Delhi. The study estimated that Rs. 8,830 million, in all, was paid as bribes by BPL households in the last one year, in availing one or the other 11 public services. It is estimated that the poorest households of our country paid Rs. 2,148 million to Police only as bribe.
NATIONAL REPOR T EPORT

I. INTRODUCTION
This India Corruption Study is unique. Unlike earlier surveys, this one is focused on BPL households, mostly in rural India. The coverage of this study includes all parts of the country, except some outlying islands. The study, like the earlier ones, is based on Perception, Experience and Estimation (PEE) model where the scope is not limited to perceptions about corruption in general, but in specific context of a service and, more importantly, actual experience of paying bribe by BPL households in availing one or more of the eleven selected public services, which most of the households avail frequently. Depending on the frequency of interaction, the eleven services are divided broadly into basic services (PDS, Hospital, School Education (up to class XII), Electricity and Water Supply Services) and need-based services (Land Records & Registration, Housing, Forest, NREGS, Banking and Police Service (traffic and crime). The concepts and methodology for the study involved household level sample survey, exit interviews at service delivery outlets, discussions with the concerned service providers and observations on display of information at the service delivery points, etc. These were finalized after extensive consultations with experts and those familiar with the services covered.
National Report
11
The fieldwork for the study was carried out between November 2007 and January 2008 by about 150 experienced investigators and dozens of senior researchers, who validated and analysed the field data. The survey covered 22,728 randomly selected BPL households across the States. The fieldwork was independently audited and the field survey was validated by sub-samples checks at a few places. The preliminary findings were further put through a series of extended consultations with about 35 outside experts whose advice was brought to bear on the analysis presented here. The perceptions about corruption in the specific context of the eleven services include whether corruption increased or declined in the last one year and whether presence of any redressal mechanism was noticed. Similarly, experience of corruption includes actual bribe paid or use of a contact in availing a particular public service in the previous one year. In this process, the study also brings out the percentage of BPL households who could not avail the particular service as they could not either pay bribe or they had no contact. Together, these three type indicate the total size of BPL households caught in the trap of corruption. Overall, more than 40 per cent of the BPL households, who approached Police, Land Records & Registration and Housing services in the previous one year, either (actually) paid bribes or had to use a contact. On the other hand, a higher percentage of people paid bribe in the case of need-based services than in the basic services. Another interesting finding is that there is not much difference in the extent of corruption that BPL households experience in urban and rural areas.
Table 1: Services Covered
Basic Services 1. Public Distribution System (PDS) 2. Hospital 3. School Education (up to class XII) 4. Electricity 5. Water supply Need - Based Services 6. 7. 8. 9. National Rural Employment Guarantee Scheme (NREGS) Land Records and Registration Forest Housing
10. Banking 11. Police
II. AN OVERVIEW
The Gap: This Study brings out that one out of every three BPL households had paid bribes in availing one or more of the 11 public services in the previous year. The study brings out the wide gap between (levels of) perception and experience of BPL households about corruption. This gap, however, is relatively narrow in the case of some need-based services like Land Registration, Housing, Forest and Police in comparison to basic services (like PDS, Hospital, School Education). Access to Service: At the national level, about two-thirds of BPL households possess a BPL Card. More than half of the households in Delhi, West Bengal and in most of the North-Eastern States did not have a card for one or the other reason including because they could not pay bribe or they did not have a contact to influence. Their frequent migration could also be a reason for not having a card. More than half of eligible households in the North-Eastern States did not have a BPL card. As could be seen from table 2, ten per cent of BPL households contacted / visited / used Police Service in the year against 88 and 80 per cent in the case of PDS and Hospital services, respectively.
12
The extent of the interaction depends on how many BPL households were in need of these services during the year.
90 80 70 60 50 40 30 20 10 0
78 70 54 42 28 8 12 5 11 11 11 46 44 47 36 26 7 11 52 32 36 69
Percent of BPL hh
S Ed uc at io up n pl y Se rv H ic os e pi ta lS er vi ce El ec tri ci ty
W at er S
Perception
Experience
Figure: Perception about Corruption is much Higher than Actual Experience
Most of the BPL households (more so in rural areas) do not require to interact frequently with the services like Housing, Land, Electricity, Water and School Education. Those who applied or registered in the earlier years for these services, they need not to interact with the department every year. If someone already had electricity or water connection, he needs no interaction with the department for that service. That is how percentage of BPL households who interacted with the service in the previous one year varies distinctly from state-to-state and service-to-service. For example, in services like, Police or Land Registration, the percentage who interacted would be much lower than in the case of services like Hospital or PDS.
Table 2: Interaction with Services
(Figures in percentage)
Basic Public Distribution System (PDS) Hospital School Education (up to class XII) Electricity Water Supply 88 80 39 52 14
Need-Based NREGS Land Records & Registration Forest Housing Banking Police 24 18 15 14 38 10
Perception about Corruption: Perception about corruption was a mixed one. Corruption, as perceived by users of the service, is relatively high (two-thirds or more) in Police, Land and Housing services. In these services, the percentage of those who think corruption has increased in the previous year is also high. These services are monopolistic in the nature, with more scope for discretionary decision making and also because the money involved in these transactions is higher.
La nd
S ec er or vi ce ds /R eg is tra tio n
Se rv ic e
Fo re st
PD
EG
Ba nk in g
Sc ho ol
ou si ng
Po l ic
Se rv
ic e
National Report
13
More households acknowledged that corruption had declined in the last one year in the case of School Education and Banking services. But over two-fifths of BPL households opined that corruption in the specific context of most of the services covered in this study continues to be the same.
Table 3: Perception about Corruption and whether it has Increased/Decreased
(Figures are in percentages)
Level of Corruption Services BASIC Public Distribution System (PDS) Hospital School Education (up to 12 class) Electricity Water Supply NEED-BASED NREGS Land Records & Registration Forest Housing Banking Police 47 69 36 70 27 78 22 12 24 14 40 7 46 43 57 41 43 39 31 45 18 45 17 54
th
Corruption Exists
Come down
Same
Increased
54 46 28 44 42
22 24 37 22 25
46 51 46 49 50
32 25 18 29 25
More than half of users of all the services perceived that corruption in the service had remained at same level or increased than the percentage of those who thought it had decreased. In the case of Police service, a higher percentage (54) of users thought that corruption had increased. Percentage, who thought that corruption had declined in the last one year, is less than half in all the services. Both perception and experience of corruption among BPL households are relatively more in the case of need-based services like Police, Land Records & Registration and Housing as compared to basic services like PDS, School Education and Hospital services. Also, more BPL households think that corruption has either declined or remained same in the case of basic services than the need-based services. Any Improvement in Redressal: Despite various kind of measures taken, like computerization, e-governance, use of Citizens Charter, RTI Act, Social Audit, etc., to improve the delivery of services, there has not been much difference on users grievances perhaps because the benefit is yet to be realized by BPL households. In the case of services like School Education, Electricity, Water Supply and Banking, however, relatively more (20 per cent or more households) had acknowledged existence of one or the other grievance redressal mechanism. In fact, more than half of BPL households using the services in the year found redressal practice same as earlier. Although, some households see that redressal had improved, a much higher percentage of the BPL households thought that redressal situation had not changed over the previous year.
14

Table 4: Perceptions on Grievance Redressal
Services BASIC Public Distribution System (PDS) Hospital School Education (up to class XII) Electricity Water Supply NEED-BASED NREGS Land Records & Registration Forest Housing Banking Police
Improved
Same
Deteriorated
21 23 33 21 22 19 12 20 13 37 7
52 55 53 58 60 54 54 64 51 50 54
27 21 14 21 18 27 34 15 36 13 39
Use of a contact: If they cannot pay bribe to avail a public service like PDS, NREGS and/or Housing, even though it is a targeted programmes aimed at BPL households, a contact would enable them to access the same. This contact could be a middle man or a functionary including an elected representative. This survey brings out that the percentage of BPL households, who avail service using a contact, vary from service to service - between 25 and 44 per cent in the case of housing and between 13 and 41 per cent in the case of Police. Even in the case of NREGS, the percentage of BPL households, who used a contact in the previous year, range from 12 to 20 per cent depending on the state. Such a reliance on a contact was observed in the case of both basic as well as need-based services. In fact, in some States (like Bihar and Assam) a contact was used by a higher percentage of BPL households to avail most of these public services. To avail Land and Housing related services, a higher percentage used a contact than in the case of other services. Even in the case of NREGS, seven per cent across various states relied on a contact may be a local representative. In fact, more than 10 per cent in some States like Bihar, Chhattisgarh, Madhya Pradesh, Jharkhand, Rajasthan, Meghalaya and Arunachal Pradesh used one or the other contact to avail NREGS. The percentage of those who availed the service using a contact was significantly lower than those who used the service by paying bribe. In other services, a much higher percentage of BPL households paid bribe to avail the service in the previous one year. Could Not Avail Services: This Study brings out that the percentage of BPL households who could not avail these services that a citizen is entitled to because they either could not pay bribe or had no contact to influence. The percentage of such households is more in the case of Housing, Police, Land Records & Registration and NREGS than in the other seven services. In the case of Housing, this percentage is as high as 12. But in States like Arunachal Pradesh, Gujarat, Karnataka, Sikkim and Uttar Pradesh, the percentage of those who could not avail housing or house plots is 20 per cent or more. In States like Madhya Pradesh and Rajasthan, their percentage is 15 who could not avail housing services as they could not pay bribe.
National Report
Table 5: Experience of Corruption
15
(Figures are in Per cent) Experience Services BASIC Public Distribution System (PDS) Hospital School Education (up to class XII) Electricity Water Supply NEED-BASED NREGS Land Records & Registration Forest Housing Banking Police 7.5 32.1 10.8 19.5 4.5 48.3 7.5 9.7 4.0 11.6 3.7 16.1 4.4 4.0 2.0 12.5 2.5 4.5 5.9 9.3 3.4 9.7 8.7 4.1 5.8 4.4 4.6 5.9 1.8 1.8 2.3 1.8 3.8 Paid Bribe Used a Contact Did not take the service because asked for bribe
Paid Bribe: Overall, the percentage of those who paid bribe out of those who interacted with the service providers, was as high as 48 in the case of Police, 32 in the case of Land Registration and 22 in the case of Housing, all need-based services. Whereas, in the case of basic services like PDS (7), School Education (3.4), Hospital (10.2) and Electricity (9.7), the percentage of BPL households, who paid bribe in the previous year was anywhere between 3 and 10. In fact, bribes were paid in the last one-year by about half of the BPL respondents for land services in Andhra Pradesh, to get drinking water in Tamil Nadu, for housing in Karnataka and Hospital services in Assam. In Delhi, nine per cent of BPL households had to pay bribe to avail PDS. Who were the recipient of the bribe? In two-thirds of the instances, bribe was paid to an official/staff in the concerned service. In fact, in the case of Police, most often the bribe was paid directly to the concerned functionary. In 20 per cent of the instances, it was a middlemen to whom bribe was paid. Bribe is paid even to a local public represen-tative. In fact, in the case of NREGS, one-fourth of BPL households, who availed the service in the last one year, paid bribe to a local public representative. Not surprising, when asked who is more responsible for corruption in general, 44 per cent of BPL households mentioned official / functionary, against 29 per cent holding politician as being responsible. In this context, some allowance must, however, be made of the fact that an overwhelmingly large proportion of BPL respondents comprises of illiterate and lowly educated persons with limited exposure to the system. They might not be well aware of the intricacies and protective/supportive linkages/quid pro quo between the politicians and the local functionaries and the middlemen. Purpose for paying bribe: One-third or more of BPL households paid bribes in the case of basic services only to get into the very service like getting a new ration card, new connection, new installation or an admission in school. In fact, in the case of need-based services, half or more of BPL households paid bribe either for obtaining a certificate, a record, to get registered as eligible, to get an allotment, to get bank loan, or to file a complaint in Police Station.
16 Table 6 : Recipient of Bribes
Official/staff 74 90 86 81 81 55 82 91 64 73 92
Middlemen 19 11 12 18 18 20 17 10 23 22 8
Local representative 7 1 1 1 1 25 2 0 11 4 1
Only 25 per cent of BPL households in the study were from urban areas. Hence, no significant difference is found between urban and rural households in the pattern of their responses, even in the case of services like PDS, school education and water.
Table 7 : Major Purposes for Paying Bribe
Services BASIC Public Distribution System (PDS) Hospital School Education (up to class XII) Electricity Water Supply New ration card, for monthly quota, change address, change shop, addition/deletion of family members, For admission, diagnostic service, medicine, ANC/PNC, operation, medical certificate, blood transfusion New admission, certificates, attendance/promotion, scholarship, hostel admission New connection, meter installation, meter repair, bill related, agriculture connection, ensure regular supply Installation/maintenance of hand pump, regularization of unauthorized connection, meter installation, repair of pipe, irrigation water, supply of water tanker Registration / to get selected, issuance of job card, wage payment Income certificate, obtaining land record, sale/purchase deed, mutation, land survey, caste certificate, property tax To pick fuel wood, for cutting trees, for saplings, to collect forest produce, forest land for farming, for grazing For filing complaint and FIRs, as an accused, remove name as witness, passport verification, verification for job, character certificate, violation of traffic laws Allotment of plot/ house, release of house loan, toilet construction, ownership transfer To take loan, open A/c, pension, withdrawal, deferment of loan installment Purposes of paying
NEED-BASED NREGS Land Records & Registration Forest Police
Housing Banking
National Report
17
Repeat Visits: Corruption is more likely where and when a citizen the number of visit to get a particular service is more. In fact, the number of visits one has to make is an indirect indicator for seeking bribe in that service. Such a phenomena also adds to perceptions about the service as a corrupt one. For a BPL household, for example, repeat visits to get registered or to get a card meant for loss of wage or opportunity, apart from harassment. There is, additionally, the travel cost of visiting to the point, especially if it is distant from the place of residence. The number of repeat visits that a citizen has to make to avail a public service needs to be minimized, if it cannot be altogether avoided. This Survey identifies specific purposes for which BPL households visited the service providers three times or more.
Table 8: Specific Services Requiring Repeat Visits
Some examples for which three or more visits were reported As in-patient for getting bed Electricity bill related To obtain land records For filing a complaint with police Bill payment of water Plot / House allotment For getting selected / job card in NREGS To open new A/c in Bank/ Post Office For new ration card Rounded per cent of Users of the Service 29 37 23 46 45 69 56 51 62
For getting a new ration card, 62 per cent of BPL households, who had applied for it had to visit the Rationing Office three or more times. Even to open a new account in local bank or post office, half of them visited three or more times in the last one year*. Also, for getting selected to get the job card in NREGS, 56 per cent of BPL households had to visit three or more times. Causes of Corruption: In the delivery of basic services, it is procedures that were pointed out as the cause of corruption and for their need to be simplified. In the case of need-based services, it is more counseling and sensitizing of the staff and transparency in the processes that needs to be addressed seriously. Establishment of accountability with an internal system of concurrent monitoring is a sine qua non for improving efficiency and curtailing corruption. Such measures could eliminate the compulsions for paying bribe. Only then middlemen menace could be minimized or eliminated because they often work in league with internal functionaries. Citizens felt that absence and/or non-availability of staff reinforces the environment for bribe seeking. Similarly, the discretionary powers of the functionaries at the service delivery point, the more the scope for corruption as in Police, Forest and Housing services. On the other hand, in a service which is otherwise perceived as relatively efficient as in the case of Banking (also at post offices) 48 per cent of BPL households feel that procedures are cumbersome and are the cause of corruption. Estimation of Bribe: Based on the incidence of bribe paid by sample BPL households, an estimate is made for the total amount paid as bribe by these households during the last one year to avail the eleven services. This exercise had taken into account the estimate of BPL households by
*
Under NREGS, some fifty million workers are supposed to get their account opened locally to get wages
18
the Planning Commission (Year 2004-05). However, a couple of states have had questioned the Planning Commissions estimate. For example, while Orissa Government puts the figure of BPL households at 4.2 million, the Planning Commission figure was 3.5 million. Since allocation of houses to poor under Indira Awas Yojana as well as most other targeted programmes is based on the estimates of Planning Commission, the estimate made in this study for the bribe paid by BPL households was done using Planning Commissions figures.
Table 9 : Factors Faced in Availing Public Services
(Percentage)
Procedural
No forms
Absence of staff
Corrupt staff
Middleman
37 38 35 40 36 33 27 28 24 48 17
3 4 7 3 5 7 4 2 3 6 2
18 26 21 18 23 10 11 11 9 13 4
38 31 33 35 31 37 51 53 50 28 73
4 2 3 4 5 13 6 5 14 4 4
The total bribe amount involved in a year in BPL households availing the eleven services covered in this study is estimated at Rs. 883 million. This could only be a conservative estimate and more an indicative one. The money involved in these estimates appear petty as in the case of NREGS, School Education and PDS, but most of it was paid directly to the functionaries. But the overall perception
Table 10: Estimate of Bribe
(Rs. in million) Services BASIC Public Distribution System (PDS) Hospital School Education (up to 12th class) Electricity Water Supply NEED-BASED NREGS Land Records & Registration Forest Housing Banking Police Total Bribe Estimated Total Bribe paid in the year
45 87 12 105 24 7 124 24 157 83 215 883
National Report
19
and damage effect of this petty corruption is much greater and calls for serious consideration of the Government to come up with schemes which would bring down corruption to zero level. Ranking of Services: School Education (up to class XII), among eleven services studied stands last in the ranking that is the lowest in the level of corruption. But when one looks at this service individually, it is also entrenched with some corruption involving BPL households. That Police service stood number one corroborates the general perception. Land Records & Registration and House/Plot, stand at two and three, respectively, in the rank. There are some specially tailored services infected by wide corruption should be a matter of concern. While the level and extent of corruption in Police service was high in all states, as if it is universal but the ranks of other services shows variations across the states. Given the nature of need-based services, which are monopolistic or involve asset creation or volume, these ranked high on corruption as compared to basic services.
Table 11: Services Ranked According to Corruption Level
Services Police Land Records & Registration Housing Water Supply NREGS Forest Rank 1 2 3 4 5 6 Services Electricity Health Public Distribution System (PDS) Banking School Education (up to class XII) Rank 7 8 9 10 11
Levels of Corruption in States: This Study, as in the case of the one for 2005, brings out that corruption affecting the common citizens, including BPL households, is all pervasive across the states and public services. No state or service is anywhere near zero corruption level. Nevertheless, taking the degree of variation from state-to-state and service-to-service, the states are grouped into four levels to explain the extent / level of corruption based on a weightage scheme Moderate, Very High, High and Alarming. This grouping and positioning of states is limited to interaction of BPL households in availing the eleven services covered in this study.
Table 12: Levels of Overall Corruption in States ( involving BPL households)
(arranged in alphabetical order)
Levels of Corruption States by size Big Alarming Assam, Bihar Jammu & Kashmir, Madhya Pradesh, Uttar Pradesh Small/ UTs Goa, Nagaland Meghalaya, Sikkim Very High Karnataka, Rajasthan, Tamil Nadu, High Chhattisgarh, Delhi Gujarat, Jharkhand, Kerala Orissa Moderate Andhra Pradesh, Haryana, Himachal Pradesh, Maharashtra, Punjab, Uttarakhand, West Bengal Arunachal Pradesh, Chandigarh, Mizoram, Manipur, Pondichery, Tripura
The service specific reports, covering the eleven services, present the relative position of states in the context of that service. Within each category, the states are arranged alphabetically. Considering
20
significant difference in the size of various States and Union Territories (UTs) particularly of North-East and others like Pondicherry, Chandigarh and Goa, the grouping is arranged separately for Big or Small ones. The above grouping reflects relative position of States in the context of all the eleven services. Very high and high level indicates that corruption level concerning BPL household is extensive both with respect to perception and experience in that year. Moderate level also indicates that the services are either not within the reach or access of the BPL households or that the extent of corruption level is relatively low. But the States under alarming group calls for serious introspection, restructuring and even repositioning of certain services meant for BPL households. Moderate level of corruption does not mean that corruption is tolerable. Nevertheless, for better understanding, the States are again grouped based on the level of corruption in the context of the particular service. It is not that high level of corruption exists in all the services of a state or the position of services in all the states was alarming. In fact, in no state corruption affecting BPL households in all the eleven services was very high or alarming. In some services, corruption was moderate but it was very high in the same state in other services. State would be better served if it focuses and seriously review services where corruption level was high, very high and alarming. By doing this, both extent of perception and experience of corruption could be brought down and the gap between the two could be narrowed. In eight states, including Andhra Pradesh, Maharashtra and Himachal Pradesh, the level of corruption is moderate in all the 11 services studied whereas in the case of Bihar, J & K, Madhya Pradesh and Assam, corruption level is alarming. For example, in six States of Chhatisgarh, Gujarat, Orissa, Delhi and West Bengal, corruption level was moderate in most services surveyed. Among smaller States of North-East and UTs, most of the eleven services in Nagaland and Goa had High or Very High or Alarming level of corruption, whereas it was Moderate in Chandigarh and Tripura, Mizoram & Pondechery.
RTI ACT BOUND
TO
MAKE
DIFFERENCE
This study looked into the extent RTI Act has come into play or has become a potential tool in the hands of economically vulnerable sections of the country. In fact, that would be a good measure of success of the RTI Act. This study brings out that in about half a dozen states more than 10 per cent of BPL households knew about RTI Act at the end of the second year since the Act was implemented. Considering the overall levels across the population, this finding is not a disappointing one. More than 10 per cent of BPL households knew about RTI Act in Andhra Pradesh, Assam, Karnataka, Manipur, Kerala, Mizoram and Nagaland. Overall, awareness about RTI Act among BPL households is much more (6 per cent) despite the Act being only two years old as compared to Citizens Charter (2.5 per cent), which has been in vogue for more than a decade. Going by this, awareness level among other sections of society should be much higher. Both in terms of awareness about the RTI Act and the extent BPL households used the Act by seeking information
National Report
21
under it is not disheartening considering that the Government or any of the eleven services studied hardly made any special effort locally to promote the Act as a potent weapon in the hands of poor or as a tool for improving the service delivery. In fact, this survey brings out that it is the news media and campaigns by civil society organizations that are mostly responsible for such a level of awareness. Since the study is based on a sample of 2 to 5 districts in each State whereas the civil society campaigns were more often confined to one or other locations within a state, the finding here may not be reflective of the state as a whole.
Table 13: Awareness about RTI Act among BPL households
State Andhra Pradesh Arunachal Pradesh Assam Bihar Chhattisgarh Delhi Goa Gujarat Haryana Himachal Pradesh Jammu & Kashmir Jharkhand Karnataka Kerala Madhya Pradesh
BPL household 13.0 4.5 10.3 1.4 4.1 5.0 1.2 4.4 2.7 2.9 4.5 5.0 12.8 10.7 4.9
State Maharashtra Manipur Meghalaya Mizoram Nagaland Orissa Pondicherry Punjab Rajasthan Sikkim Tamil Nadu Tripura Uttar Pradesh Uttarakhand West Bengal
BPL household 6.9 13.0 0.6 12.0 14.1 3.8 8.0 2.7 5.7 2.7 6.7 0.5 1.4 8.4 1.4
In States like Gujarat, Andhra Pradesh, Chhattisgarh, West Bengal, Kerala and Rajasthan, BPL household used RTI Act mostly for information on PDS, Hospital, School Education, NREGS and Banking services.
Table 14 : Percentage BPL Households Applied Under RTI Act
State Andhra Pradesh Arunachal Pradesh Assam Bihar Chhattisgarh Delhi Gujarat Haryana Karnataka Kerala Maharashtra BPL household 1.0 0.2 0.2 0.1 0.8 0.1 1.5 0.3 0.4 0.6 0.1 State Mizoram Madhya Pradesh Nagaland Orissa Pondicherry Punjab Rajasthan Sikkim Tamil Nadu Uttarakhand West Bengal BPL household 0.2 0.3 0.4 0.2 0.2 0.3 0.6 0.2 0.2 0.1 0.8
22

OF
FORMULATION
CITIZENS CHARTERS
This study reminds the potential of Citizens Charters if they are formulated in consultation with all the stakeholders, having provisions for compensation (like RTI) made focused and displayed at delivery outlets of concerned public services. This is notwithstanding the measures taken towards e-Governance schemes being in the pipeline. This will further strengthen the scope of RTI Act.
SUGGESTED GUIDELINES
1.
FOR THE
CITIZENS CHARTERS
List all Offices according to type of services they provide to public - indicate their location, areas they cover, type of services being rendered to public, phone nos. There should be a separate Citizens Charter for each office covering the services they provide. For example, there should be a separate Charter of the Directorate, its subordinate offices, Hospitals, Schools, etc. according to specific services they provide. Mention Service Standards - Step-by-step road map based on Where to go; How to proceed, simple and easy to fill-in forms, specimen of duly-filled in forms, documents, fees, etc. required, specified time schedule, Dos & Donts, etc., names, addresses and Tele. Nos. of concerned Officials, alternate/applealete authority for each service, etc. Minimum documentation, self-attestation and self-declaration - Efforts should be made to minimize the number of Forms. Such Forms (e.g., Application for Ration Card) should be publicized through the Newspapers and the concerned website to enable the service seekers to get them copied and use it, according to convenience. No duplication - In case desired information and documents submitted earlier like proof of residence (if there is no change), birth certificate, etc., these should not be asked again and again. If promised services are not provided as per specified time schedule, an effective grievance redress mechanism (including the provision of compensation to the concerned citizen in order to introduce accountability) should be introduced Provision of TATKAL (Immediate) Services if somebody is in urgent need (as in the case of Passport, Railways, etc.) to avoid touts, bribery, etc. Simultaneous changes in the Proforma and other requirements to be effected along with the changes made in the Citizens Charter Database of frequently required infor-mation, like ownership of property, vehicle, etc., tax and dues paid or pending, etc.
2.
3.
4.
5.
6.
7.
8.
9.
10. Salient features of each service should be prominently displayed in simple and easy language at all places likely to be visited by the service seekers. 11. If possible, the services and their related information may be presented in a tabular form. An example of the Tabular Form is given on the next page:
National Report
23
(As on date.........................................)
Sl. No. Services offered
Formalities Required Form* Documents (Self Attested)
Place of Work
Working Hours
Time Limit
Designated Officer Room No. Tel. No.
Alternative Officer Room No. Tel. No.
1 2 3
Effective Grievance Redress Mechanism

Room Officer to Meeting No. be Time approched 1 2 3
Note: Every Citizens Charter has to be finalized after having a detailed discussion with the concerned service providers, service seekers and the genuine NGOs representing the concerned citizens and services.
Phone No. Office
Public Information Officer e-mail/ID
Res. Name Room No. Tel No.
Compensation to Complainant
Remarks
SERVICE PROVIDERS PERSPECTIVE
AND
THE TYPES
Service providers perspective across States and services could be summed up into different types, as follows: Yes, we are ready to help, but we hardly get any complaints. These providers knew the problem of reach and reliability of the service, but keep waiting for an accountability. Yes, we promptly attend to the problems brought to our notice but there are too many problems / deficiencies. We are short of staff to do anything more, our work load has increased so much. We are ready to serve, but public do not cooperate. Not in our hand, procedures are from above. No differentiation between performer and non-performer, no motivation to do more / better and to take initiatives, locally. We are operating with outdated facilities, support and rules Pressure of work load, often driven by political pressures Staff hardly gets any training to cope with increasing demands and expectations We hardly get any guidance from above/ outside for correctives
24
India Corruption Study 2008 Our priority is not BPL households only. Catering BPL households is more complex, difficult and requires special efforts.
Broadly, service providers responses across basic and need-based services fall into three typologies: (1) defenders, of what they are doing; (2) passive executives who think things will take their own course, and (3) reactive executives who responds positively, but appealed individually only. The training or orientation should be to see that some pro-active outlook functionaries are provided the opportunity, particularly while interacting with BPL households.
SOME SUGGESTIONS
A FOUR-PRONGED DRIVE NEEDED
The findings of this study calls for four-pronged efforts to facilitate initiatives towards zerocorruption both in the case of basic and need-based services :
1. Simplification
Urgently required are simplification of procedures and even eliminating certain formalities for BPL households; more visible and interactive redressal practices; curbing discretionary options with individuals at service delivery points; and accountability by giving identities of functionaries.
2. Streamline Information Flows

Improved flow of information for a more transparent and trust-based transactions and customized service orientation with the help of IT tools, e-Governance initiatives and better-organized frontends of service delivery points are needed. Also, priorities and concerns of e-Governance projects should keep in view the special needs of vulnerable sections of households.
3. Front End Staff Need Special Concern

Reorienting staff to serve BPL and vulnerable households with special attention and on a priority basis is required. Their sensitivity to special needs of BPL households need to be improved with periodic workshops and training programmes and special arrangements in the operations.
4. Civil Society Activism is Better Bet

Finally, civil society activism has to come more in to play. It should be possible with RTI Act, Citizens Charters, Social Audit and on-line services. This study has shown that social activism can make difference in favour of the poor. There is ample scope for a collaborative course.
BPL HOUSEHOLD NEEDS
RE-LOOK
Proof of claims of inclusive growth, good governance, social justice, etc., depend how well BPL households are being reached and served. The very concept of BPL households needs to be reviewed in the light of recent report on Social Security for Unorganized Workers and the State Governments race to change threshold level for BPL eligibility for subsidized services. The
National Report
25
more the widening of the criteria for BPL, the more likelihood of the poorest of the poor or hardcore BPL households being deprived. A task force can come up with State specific and service-specific changes and suggestions in this regard to make sure that poorest of the poor are not to be further deprived.
NEED
TO BE
UNDERSTAND & SERIOUSLY ADDRESS PERCEPTION
The gap between perception about corruption in basic public services and experience of paying bribe or using a contact for availing those services, need to be taken more seriously. Actual corruption in the context of the basic services is lower than the extent of perception. Nevertheless, reposing public confidence and demonstrating improvement in the system by making it more responsive to needs, should be a priority concern. However, without addressing perception related phenomena, actual level of corruption cannot be brought down. The gap cannot be addressed without cooperation of mass media. Despite some decline in the experience of corruption involving citizens in availing some of the public services recently, perception levels have not come down, but somewhat increased as if it is in proportion to portrayal of corruption in general, and in the electronic media, more specifically. It is important to understand that while media itself has become a new source of redressal for citizens, it is also keeping corruption in public eye but to the extent that people becoming immune or treating corruption as a non-issue. This phenomenon is more to do with repetitive coverage and hyping. But this trend needs to be studied seriously, transparently and with voluntary cooperation from the broadcasters.
PROACTIVE USE
OF
LOCAL MEDIA
In the context of BPL households, FM radio in urban and local TV channels in the rural areas could be played a special role. Those responsible for the contents of news media in particular should be sensitized about the very character and structure of corruption and its implications to different sections of people and best ways and strategies in which the media could play a role in the war against corruption, particularly in areas involving citizens and in their use of public utilities.
CORRECTIVE POTENTIAL
OF
SOCIAL AUDIT
Social Audit of not only targeted programmes but of other services like Banking, Hospital and School Education should become an on-going exercise at least once a year. Social Audit with civil society groups in a collaborative spirit would help in ensuring that BPL households are not disadvantaged. Community Audit in the case of basic services and Social Audit in the case of need-based services once in 2 or 3 years is likely to help narrow the gap between perception and experience.
RTI CAMPAIGNS
AMONG
BPL COMMUNITIES
This Study brings out that once the potential of RTI Act is understood, BPL households will not lag behind. In fact, they are likely to make use of the service even more. That is the time when one could say that RTI Act has done what is expected of it, including reducing corruption. There is urgency for civil society groups, the news media and local academics to come together and organize campaigns on RTI Act among BPL communities.
26

OF
INCLUDE UNIQUE NEEDS
BPL USERS
The visible effect of IT and E-governance will not be evident unless special efforts are made aiming at BPL communities. The so-called digital divide even in urban areas could be because BPL and such other communities are two or three years behind in getting the benefits. This study indicates that computerization of land records, as a priority programme of E-governance, had not helped BPL households much perhaps their unique requirements were not as much a focus. Computerization of information or service alone may not be effective unless it is given in the public domain.
E-GOVERNANCE SCHEMES SPECIALLY ADDRESS BPL NEEDS

Although it is obvious that the first advantage of IT and e-governance would always be taken by those who are better educated, better exposed and economically better off, there is a need to make some special efforts to reduce lead time and hasten the process so that the disadvantaged people realize the benefits, parallely. With broadband reaching rural and far off locals and at reduced cost, it should be possible to make available the benefits of e-Governance parallel to the poor.
REDESIGN FRONT END OFFICES
OF
PUBLIC SERVICES
It is better that front end of most Government services /departments involved in serving citizens in large numbers and cutting across socio-economic backgrounds, are redesigned professionally in such a way that there is provision for display of pertinent information, helpdesk and equipped with modern communication facilities.
UNIVERSALIZE BPL CARD

The size of BPL households is not fixed in the case of both basic and need-based public services. It fluctuates often. Migratory character of the poorest calls for a universal BPL card a card (similar to banks ATM cards) which provides access and entitlement anywhere, at least in the concerned State.
SPECIAL SCHEMES
TO
ENSURE SERVICE
TO
BPL
BPL households also require special service delivery facility to the senior citizens. Repeat visits need to be avoided as it obviously imply that BPL households are not getting the priority that is promised. The fact that functionaries themselves are the direct recipients of bribe from the poor in most of the cases, need to be viewed far more seriously.
ENCOURAGE USERS FEEDBACK

BPL households/communities should be encouraged with special benefit schemes so that they could be more organized, more active and articulate in giving their feedback. The fact that hardly a few take time to write their feedback is something that need to be taken up to encourage them to do so as often. Panchayats have to be entrusted with responsibilities so that the reach, access and reliability of targeted programmes to BPL households become better and redressal is not ignored or delayed.
National Report
27
BE
REDRESSAL SYSTEM SHOULD NOT
LIMITED
TO
WRITTEN COMPLAINTS
Mechanism and practice of redressal of grievance requires much higher level of attention, sensitivity and follow-up particularly in the context of BPL households. Criteria of having to have written complaints and their number should not be viewed as good enough in the context of BPL households. Scope for discretionary decision making needs to be minimized at the delivery end - both in the case of basic and need-based services and made more responsible or accountable.
CONSTANT SUPERVISION
AND
ACTIVE FOLLOW-UP
Issues of staff attitudes and mindset cannot be moderated without constant feedback, guidance or supervision, training and accountability. Frequently changing procedures and formalities specific to various sections of people, as in the case of BPL households, need to be familiarized. In this regard, local schools management and such other independent academic bodies could play a role by organizing workshops, sensitivity and training programmes for the staff of basic public services at the grassroots level.
SOME
OF THE
COMPULSIONS
FOR
BRIBE
CAN BE
AVOIDED
BY
REROUTING RESPONSIBILITIES
This study has identified the core functions, which cause most corruption in the case of each of the 11 services. If the processes involved in these specific functions are attended by revamping and by way of computerization and keeping them in public domain, compulsions for paying bribe could be avoided or minimized. In fact, by sorting out the very procedures and formalities for availing the service, the very scope for paying bribe by citizens could be eliminated in one-third to half of the cases depending on the service and the State in context. Establishing identity / entitlement procedures and formalities need to be minimized and responsibilities could be shifted. For example, banks could directly obtain land records on-line or otherwise the references or particulars instead of making BPL households run around.
ACHIEVEMENT CLAIMS LESS SIGNIFICANT
IF
ACCESS NOT ASSURED
This study brings out that performance achievements or target achievement claims of Governments, even in the case of individual services, does not mean much for BPL households unless special emphasis is given to them at the service delivery points. Some effort to validate such claims is needed periodically.
SPECIAL DRIVES/CAMPS
TO
REACH OUT
TO
BPL COMMUNITIES
While efforts are being made to expand the reach, there must be ways to see that no BPL household is deprived of the basic services, for whatever reasons. Special efforts should be made to reach BPL households by way of specific drives, camps or campaigns.
REDUCE COMPULSIONS
FOR
REPEAT VISITS
More specifically, the need for repeat visits should be curbed which is possible to some extent by re-looking into procedural complexities and improving grievance redressal mechanism and, at the same time, curtailing discretionary powers of individual functionaries.
28
COMPETITIVE POLITICS SHOULD SPARE TARGETED SCHEMES

An important finding of this Study is that competitive politics of late are affecting, directly and indirectly, the very noble objectives of most targeted programmes aimed at the poor. They are adding to the problem of access to the service and the extent of corruption. This is one of the concerns of service providers themselves and, also of course, of BPL households. There are too many case examples that have come to the notice of field researchers. A case narrated from Assam on housing service is not an isolated example. In fact, in more than a couple of states it was found that party leaders openly threatened BPL, ST, SC households to withdraw benefits of one or other targeted programme, if they did not vote for their respective local party. (This includes NREGS, BPL cards, housing, rice @ Rs 2/-, pension, patta for land, housing loans and bank loans). As long as discretionary powers of individuals at the service delivery points and certain confusion as to the responsibilities and accountabilities are not addressed, political interference is going to be a major source for corruption affecting the poor more.
National Report
29
APPENDIX RESEARCH METHODOLOGY

Centre for Media Studies (CMS) has been undertaking periodical corruption studies since 2000. Every subsequent year, attempt has been made to refine its methodology. A combination of quantitative and qualitative research methodologies was adopted for this India Corruption Study-2008, focused on BPL households. The focus of the quantitative survey was on estimating value (in Rupees) of total bribe paid by the BPL households. Qualitative research techniques were used to identify the nature of the systemic issues and factors responsible for corruption involving BPL households. This study brings out the personal experience (either pay bribe or use a contact or could not avail the service) of BPL households while interacting with specific service/department. This study also brings out their perception regarding corruption while they interacted with the specific department. Based on the peoples perception and experience, a mathematical model was used to calculate a composite score of corruption for each state/service. Sixty per cent weightage was given to three Experience related indicators, and 40 per cent to three Perception related indicators. The final weights were arrived at after using factor analysis (principal component).
QUANTITATIVE RESEARCH
Household Survey : Household survey was conducted using a structured interview schedule. Field investigators personally interviewed respondents at their residence. Exit Interview: For each of the selected services / departments, service delivery points were identified. Out of those selected delivery points, the field researchers conducted exit interview with the help or a semi-structured schedule when citizens (BPL category only) were leaving these points so as to explore the purpose, number and outcome of the visits. This helped in having views and opinion of those who had first hand experience of the service provided by the concerned department.
QUALITATIVE RESEARCH
Discussions with the Local Service Providers: In-depth discussions were held with the concerned Government Officials to understand the process leading to mal-administration and corruption in the service and know about recent initiatives to improve the services. Observations at Service Delivery Point : A checklist was given to researchers to observe various aspects related to interface with users like reception desk, information display, availability of forms, display of delivery standards, etc. Case Examples: An effort was made to know examples for local initiatives and the most corrupt practices pertinent to the services.
SAMPLING DESIGN
Selection of Districts It was ensured to have a representative number of districts from each state. Two criteria were considered in selecting these districts:
30
India Corruption Study 2008 At least one district from each geographic region of the state At least one district covered under Phase I of the National Rural Employment Guarantee Scheme (NREGS).
However, it was noticed that in some states, the number of NREGS phase-1 districts were less than the number of districts to be covered from that state. In such case (e.g. Punjab), districts identified in Phase II of NREGS were included in the universe for the survey.
SAMPLE
SIZE
& COVERAGE
To arrive at statistically reliable estimates, states were stratified into three categories according to the number of BPL households: States with around 10 lakhs or more BPL households States having less than 9 lakh but more than 1 lakh BPL households States having less than 1 lakh BPL households
From random sampling point of view, a minimum sample of 400 BPL households was kept for smaller states to allow estimation at 95% confidence level at 5% margin of error. For larger states, pre-decided sample size was considered large enough for precise estimates.
Sample Distribution
States Unit Big States (10 lakh+) Middle States (1 9 lakh) Small States (< 1 lakh) Total Number of States State 15 7 9 31 Number of Districts District 64 21 18 103 Sample Size Proposed Households 13,500 4,200 3,600 21,300 Sample Size Achieved Households 13,866 4,515 4,347 22,728
POPULATION
The central focus of the Study is BPL households. To identify the BPL households, selection criteria was based on Planning Commissions estimation of poverty line1 For Rural area - Rs 356 per capita, per month For Urban area - Rs 539 per capita, per month
Within the Household, Respondents were Selected by the following Criteria:

Male or female (21 years and above) at household level and at service delivery point. Those who have interacted with the selected public service during the last one year.
1 The poverty line (implicit) at all-India level is worked out from the expenditure class-wise distribution of persons (based on uniform reference period (URP)- consumption, that is, consumption data collected from 30 day recall period for all items) and the poverty ratio at all-India level. The poverty ratio at all-India is obtained as the weighted average of the state-wise poverty ratio.
National Report
31
A. For Exit Interviews

Service delivery points were identified from each selected rural and urban location. The service seekers coming out of these points were picked up at random and interviewed using the predesigned question schedule.
B. For Household Survey

From each selected district, sample was taken from rural and urban areas. The revenue villages or census enumeration blocks (CEB), as demarcated in 2001 Population Census of India, were used for selection of rural and urban locations, respectively. Accordingly, rural locations were selected at random from the list of revenue villages within the Community Development (CD) Block. Similarly, urban areas of the chosen district were selected at random.
SELECTION
OF
ELIGIBLE HOUSEHOLDS
From each selected urban cluster, around 15 households were interviewed for the present study. In rural areas, 25 households per cluster were selected. A circular systematic random selection procedure was followed to select eligible households for interview. Since the focus was BPL households, a screener was used to assess the monthly household income beside enquiry on owning a BPL card.
METHODOLOGY
FOR
ESTIMATION
OF
BRIBE
The total monetary value of corruption paid by BPL households in the country, has been arrived at by adding up bribe involved in each department/service. Corruption for each department is estimated using a linear mathematical equation. Secondly, percentage of the households who availed the services of the department in the last one-year was estimated. In the third step, number of BPL households who had to pay bribe to avail the services were calculated. Fourthly, average amount * of bribe paid by a BPL household in the service in the past one year was computed. The mathematical model for the extrapolating the total bribe paid in a state or in any service/department in a year is as:
T.C Whereas T.C T.C.D Whereas T.C.D T.H P.H.I P.H.C A.C = = = = = = = = T.C.D1 + T.C.D2 ++ T.C.Dn Total corruption in the country in INR T.H x P.H.I x P.H.C x A.C Total corruption in the service in INR Total number of BPL household in the state Proportion of BPL household interacting with the department Proportion of BPL household paying bribe Average amount of bribe paid by a BPL household in a year
OF
METHODOLOGY FOR RANKING
SERVICES
AND
STATES
Based on previous experience and the consultations with experts, the weights for each of the following six indicators were assigned to compute a single index on corruption. Based on three each Perception and Experience related indicators, a Composite Score was arrived at.
*outliers have been excluded while calculating the average amount.
32
Factors Experience of Paying Bribe Using contact to influence Could Not Avail Service Indicator Experience
Proportion of BPL households paying bribe (E1) Proportion of BPL households using influence (E2) Proportion of BPL households who could not avail service, because they could not pay the bribe or use influence (E3) Perception
Perception of Department (regarding corruption) Increase/ decrease in corruption
Proportion of BPL households who perceive that the Department to be corrupt over proportion of those BPL households who perceive the Dept. was not corrupt (P1) Proportion of BPL households who perceived that corruption had increased or decreased over proportion of those BPL households who perceived that corruption had decreased (P2) Proportion of BPL households who acknowledged the grievance redressal mechanism has been improved over proportion of those BPL households who acknowledged the grievance redressal mechanism has deteriorated (P3)
Grievance redressal improved or not
The mathematical model used for computing the Composite Score of Corruption (CSC) is: CSC = E1 30 + E2 20 + E3 10 + P1 22 + P2 11 + P3 7
LIMITATIONS
IN
ESTIMATION
AND
SAMPLE SELECTION:
Identification of BPL households has been done as per pre-determined status i.e. possessing BPL card or not (as per the respective state government) or monthly per capita income. Due to lack of previous information, required minimum respondents interacting with specific department could not be estimated with precision. In some cases, minimum number of persons, who had interacted with specific service/department, could not be achieved. Therefore, those departments have not been included for estimating bribe in respective state report. Comparing states for a particular service has been done with caution because level of interaction is different in different states. In the case of Forest and NREGS, more specifically, the estimates are limited and the phenomena is not relevant for urban sample.
National Report
List of Selected Districts Visited in each State
State Andhra Pradesh Arunachal Pradesh Assam Bihar Chandigarh Chhattisgarh Delhi Goa Gujarat Haryana Himachal Pradesh Jammu & Kashmir Jharkhand Karnataka Kerala Madhya Pradesh District Vishakhapattnam, Chittoor, Srikakulam and Hyderabad Popun, Upper Subansiri and Lohit East Dhemaji, Marigoan, Kokrajhar and Dispur Patna, Muzzafarpur, Gaya, Araria and Samastipur Chandigarh Rajnandgaon, Dantewada, Raipur and Koriya North West Delhi, North East Delhi and South West Delhi Sangam, Madgaon, Panji and Phonda Palanpur, Gandhi Nagar, Godhra and Dang Ambala, Mahindergarh and Sirsa Shimla, Chamba and Kangra Doda, Anantnag and Srinagar Ranchi, Dumka, East Singbhum and Palamu Raichur, Banglore, Chitradurga and Bidar- North Palakkad, Kasargod, Wayanad and Trivendrum Shivpuri, Jhabua, Bhopal, Balaghat and Sidhi West Bengal Uttarakhand Sikkim Tamil Nadu Tripura Gangtok and Mangan Dindigul, Tirruvanamalai, Cuddalore and Chennai South Tripura, West Tripura and Dhalai Punjab Rajasthan Jalandhar, Nawansahar and Hoshiarpur Pondicherry Nagaland Orissa Mon and Kohima Mizoram Lawngtlai and Aiwzal State Maharashtra Manipur Meghalaya District
33
Ahmadnagar, Yawatmal, Nandurbar, Nanded, Mumbai Imphala and Tamenglong West Garo Hills and Shillong
Bhubaneswar, Gajapati, Korput, Nuapada Pandicherry
Udaipur, Jaipur, Karauli, Sirohi
Uttar Pradesh Badaun, Chitrakoot Lucknow, Kausambi and Hardoi Dehradun, Haridwar, Tehri Garhwal and Champavat Kolkatta, Malda, Murshidabad and Purlia
Part-II Perception and Experience of Corruption: Service-wise
1. Public Distribution System

HIGHLIGHTS
It is estimated that around 47.23 million BPL households (88 Per cent) interacted with the Public Distribution System during the last one year. More than half (54 per cent) of the BPL households had no doubt that corruption exists in the PDS. In fact, around one-third of the BPL households felt that corruption had increased in the PDS service during the past year, while another 46 per cent did not notice any change in the corruption level within the service. Around 10 per cent of the BPL households either paid bribe or used contact to avail one or the other services of the PDS during the last one year. The total amount of bribe paid by these BPL households in the PDS during the last one year is estimated to be Rs. 458 million. Among reasons cited for paying bribes, getting a new ration card was reported by majority of the surveyed BPL households (44 per cent). Around 30 per cent of rural BPL households paid bribe to take the quota of ration from the Fair Price Shop. Among households interacting with PDS service for reasons other than collecting their monthly ration, around 94 per cent had to visit three times or more to avail services like getting a new ration card, to change the ration shop, among others. Three out of four BPL households, who paid bribe to avail services during the last one year, paid it directly to the concerned official/staff. More than one out of ten BPL households (13 Per cent) acknowledged that measures have been taken by the State governments to check corruption in PDS service during the last one year. On grievance redressal measures taken within the PDS service, every second BPL households opined that the situation has not changed in the last one year while 26 per cent felt that it had in fact deteriorated.
1.1 INTRODUCTION
Public Distribution System (PDS) in India evolved as a major instrument of government economic policy for ensuring availability of food grains to the public at affordable price as well as for ensuring food security for the poor. PDS, with a network of about 5 million Fair Price Shops (FPS), is perhaps the largest distribution network of its kind in the world, and is operated under
38
the joint responsibility of the Central and State Governments.1 For 2006-07, the subsidy on food accounted for Rs.2, 42,000 million, a major part of which is accounted for by the PDS. Over the years PDS has come under scanner for inefficiency in its operation, existence of ghost cards, and the diversion and misappropriation of food grains at different levels under PDS2. To counter this, the government proposes to introduce, on experimental basis, Smart Cards to distribute food grains in Chandigarh and Haryana during the current Financial Year (2008-09). Different schemes under which government distributes food grains, mainly rice and wheat to economically poor households include Targeted PDS, Annatodya Anna Yojana (AAY) and Annapurna Yojana (See Box). In addition to this, State Governments have taken some measures from time to time. For example, distribution of wheat flour in Punjab and rice at cheaper rates to the poor households in Andhra Pradesh and Chhattisgarh.
Schemes for BPL under PDS Targeted PDS Provides 25 kg of wheat and 10 kg rice per month. Antyodaya Anna Yojana-The poorest of poor, who are on the threshold of starvation, are provided 35 kg of food grains a month at highly subsidized rate. Some states give both rice and wheat while some distribute only rice or wheat depending upon the staple food of the state. Annapurna Yojana-Envisages 10 kg of free food grains per family per month to people who are more than 65 years of age and do not receive old age pension from the government. The applicants must be destitute in the sense of having little or no regular means of subsistence from his/her own source of income or through financial support from family members or other sources.
Food grains including kerosene oil under PDS are distributed to households with ration card through FPS. Number of households served by a FPS in a state varies considerably and can be an important indicator for better service delivery. The all India average puts 465 cards per FPS (as on Deember, 2006). However, some states have better ratio than the national average. These include Assam, Bihar, Delhi, Himachal Pradesh, Jharkhand, Maharashtra, Punjab, Orissa, Uttarakhand and the Northeast states except Tripura. At the same time, catering to a smaller number of households cannot be the only criterion for expecting better service delivery. It is equally important for the States to ensure that food grains are made available at FPS and that they are promptly and correctly disbursed. For this, the States are expected to procure their allotted quota from the Centre. However, none of the States except two have lifted the allotted food grains under the Targeted Public Distribution System. Availability of subsidized food grains through PDS plays a crucial role in meeting the food requirements of poor households. To a large extent, not procuring the allotted quantity of food grains leads to shortage and irregular supply of food grains under PDS to poor households. Government agencies like CAG as well as print and electronic media have reported siphoning off of food grains to the open market. Even States, which have taken a high per centage of the allotted food grains, were reported to be no different when it came to leakages and diversion of food grains.
1 2
Government of India: Annual Report, Ministry of Consumer Affairs, Food and Public Distribution, 2006-07 http://www.ncaer.org
Public Distribution System
39
To assess BPL households perception and experience with the PDS service during the last one year, India Corruption Study Team interacted with 22,728 BPL households across 31 states and UTs in the country.
Table 1: Categorisation of States by off take
State-wise Percentage off take of Allocation under Targeted Public Distribution System (TPDS) (2006- Dec 2007)3 Level of off take Low States/UTs Chandigarh Punjab Goa Bihar Pondicherry High Karnataka Tripura Arunachal Pradesh Andhra Pradesh Himachal Pradesh Assam Jammu & Kashmir Meghalaya Mizoram Nagaland
1
% Off take 0.98 15.35 20.14 24.06 26.85 72.81 74.4 74.64 81.9 83.16 84.62 85.2 93.74 102.41 106.08
Level of off take Moderate
States/UTs Haryana Gujarat Sikkim Rajasthan Uttar Pradesh West Bengal Kerala Uttarakhand Chhattisgarh Maharashtra Orissa Tamil Nadu Jharkhand Delhi Madhya Pradesh Manipur
% Off take 35.56 36.7 39.03 41.58 42.15 43.84 44.27 45.89 47.65 48.17 51.03 57.2 60.37 61.94 63.33 67.54
Source: Lok Sabha Unstarred Question No. 785, dated 05.03.2007
1.2 INTERACTION
WITH
PDS SERVICE
The interaction of households with PDS could be broadly categorised in to two types- Recurring and non-recurring. Recurring visits to PDS are made to procure the monthly ration from the designated FPS while non-recurring visits include visits made for ration card related issues like getting a new ration card, changes in ration card, change of ration shop, among others. Among the surveyed BPL households across the country, 88 per cent reportedly interacted with the Public Distribution System during the last one year, highlighting the dependence of poor households on the PDS to meet their food grain requirement. However, in states like Manipur and Meghalaya, the per centage of BPL households, who had visited the Food Supply Office or Fair Price Shop, was less than one-fourth. This could largely be attributed to either not having a ration card or irregular supply of food grains at the ration shops (as reported in a recent CAG report) although these states have lifted more than two-third of the allotted food grains. Per centage of BPL households interacting for the service under PDS during the last one year was slightly higher in rural areas (89 per cent) compared to those living in urban areas (86 per cent). This could be because of higher dependence on PDS by BPL households in rural areas.
3
Government of India: Annual Report, Ministry of Consumer Affairs, Food and Public Distribution, 2006-07
40

OF
1.3 PURPOSE
INTERACTION
Expectedly, the interaction of poor households with the Fair Price Shop was more as compared to their interaction with concerned staff of PDS. On an average, 80 per cent of the BPL households across the country interacted with PDS outlets to collect monthly ration. About 14 per cent visited to get a new ration card issued. A larger proportion of households in the northeastern states interacted to get a new ration card during the last one year. Among other states, in Delhi (35%), Haryana (31%) and Punjab (20%), the per centage of poor households interacting with the PDS service for a new ration card was comparatively high. This could be due to large influx of poor in search of livelihood from neighbouring states. Ideally households are expected to visit a FPS every month to collect their monthly ration. However, the study brought out that the BPL households had to make repeated visits to the concerned office or outlets for other purposes as well.
Table 2: Purpose of Interaction
(Figures in Percentage)
Purpose of Interaction To collect monthly ration Preparation of new ration card Change in ration card Change in ration shop Apply for license to sell kerosene oil Release of extra quantity during festivals
All India (N = 19,934) 80 14 6 1 1 1
Of those visiting for purposes other than for monthly ration, as high as 93 per cent had to make three or more visits to the PDS office for the same work. A break up of purpose for which these households visited three times or more, shows that the majority of repeat visits is by new ration card applicants. The survey also indicates that it is also difficult to change the information in the ration card once it is issued, and repeat visits have been reported for nearly one-quarter of these cases. It is interesting to note that in the north-eastern states where off take of food grains is reported to be high, per centage of BPL households visiting the PDS office with the request to change the ration shop is high. This might be due to shops not opening regularly. This suggests that in spite of high procurement, food grains are not distributed by FPS as promptly.
Table 3: Visited Three Times or More for Same Purpose
Purpose of Repeat Visit Preparation of new ration card Change in ration card Change in Ration Shop For license to sell kerosene oil For release of extra quantity during festivals
All India (n = 3692) 62 23 6 4 4
41
1.4 DIFFICULTIES FACED DURING INTERACTIONS

The BPL households faced many difficulties in order to avail the services. The harassment included procedural delays due to non-availability of application forms, and delay by the staff in the verification of documents. Even after possessing the ration card these households faced hurdles in getting registered at the FPS. More than half of such households felt that people responsible for providing services under PDS both office staff and retailer of Fair Price Shops, either indulge in corrupt practices or are unavailable. These unwanted delays force the BPL households to either suffer silently and be deprived of the access or pay bribe and/or other considerations to obtain what they are entitled for. Households believe that causing such procedural delays is a tactics adopted by the staff to lure needy households to resort to other methods including paying bribe.
Table 4: Difficulty Factors
Difficulty Factors
All India (N =1 9,934)
State Category by Off take Low Moderate 39 45 18 4 High 39 39 23 4
Corrupt Staff Procedural Absence of Staff Interference of Middlemen
40 43 19 4
49 36 15 3
1.5 PERCEPTION
ABOUT
PDS SERVICE
More than half (54 per cent) of the BPL households were of the opinion that corruption exists in the PDS service. Even though some states have taken measures to curb corruption and make service delivery efficient, this has not reached the lowest level as yet. As a result BPL households continue to face problems.
46 32 40 20 0 All India Incre ase d Same Came Down 22
60
Figure 1: Perception about Level of Corruption in PDS (%)
Asked whether corruption has increased or decreased in the last one year, around one-third felt that it has increased while 46 per cent did not notice any change in the level of corruption during the last one year. In states like Jharkhand (73 per cent), West Bengal (55 per cent) and Kerala (53 per cent), relatively high per centage of BPL households felt that corruption in PDS service had increased
42
during the last year. Frequent media reports on diversion of food grains meant for distribution under PDS to the open market builds up such perception. Recently, West Bengal was in news for PDS scam and this could have contributed to the perception about PDS service in the state.
1.6 MEASURES TAKEN TO IMPROVE SERVICE

When asked if initiatives taken by the PDS department had helped fight corruption, only 13 per cent of the BPL households replied in the affirmative, while the rest either disagreed or showed their unawareness about any such initiatives. Easy access to information about process to avail the services is a prerequisite to improve service delivery and make it user friendly. However, three out of four households who interacted with the service felt that information on how to get a ration card, the documents required or when ration will be disbursed was still not easily available.
Table 5: Measures Taken to Improve Service
Measures Taken to
All India
State Category by Off take Low Moderate 14 24 20 High 8 22 18
Check against corruption Make information easily available Improve Grievance Redressal
13 24 21
22 30 30
Eight out of ten BPL households felt that grievance redressal had, in fact, deteriorated during the last one year. Only in states like Himachal Pradesh, J&K, Punjab and Pondicherry, per centage of BPL households, who acknowledged improvement in grievance redressal system in the PDS was more. In spite of the fact that some states have taken initiatives to check corruption or address grievances, not many BPL households experienced any such initiatives.
Online and roaming ration card system The Government of Gujarat recognized that many BPL and AAY citizens migrate in search of work. The concept of a Roaming Ration Card has facilitated the migratory workers to procure their provisions at the controlled price. This new scheme could become possible because of full computerization of the PDS work. The new blue Roaming Ration Card entitles the user to procure food and other supplies subsidized by the government from anywhere within the State.
1.7 EXPERIENCE OF CORRUPTION

Like our earlier rounds of India Corruption Study, which covered the general population, a gap between perception and experience about PDS Service was evident in the case of BPL households, as well. Ten per cent of the BPL households had to either bribe or use a contact to avail PDS services whereas 54 per cent perceive that corruption existed in PDS service. Most of the time, BPL households could not afford to pay bribe due to low income nor have any contact to influence the service providers to get their work done. As a result, a significant proportion of the BPL households remained deprived of the benefits.
43
At the national level, 6 per cent (2.8 million) BPL households paid bribe in the previous year to avail the services of PDS. To add to it, around 0.9 million BPL households in the country remained deprived of its services because they could not afford to pay bribe or had no contact.
Table 6: Gateway of Service - Bribe or Contact?
Gateway To Avail Service
All India (N =1 9,934)
State Category by Off take Low Moderate 5 4 2 High 7 2 2
Paid Bribe Used Contact Did not take the service because asked for Bribe
6 4 2
7 8 4
BPL Ration Cardat a price Atik Bhaan, a wage labour in a village in district Anantnag of J&K, is the only earning member in his family of five. Due to militancy disturbance, he was not able to get regular work. Sometimes the family had to miss meals or borrow from neighbours. Lack of food also led to children frequently falling ill. This cant go on for long, he felt. Though he had heard of subsidized food grains being distributed from PDS, he felt that if he too could avail the benefits, it could help him in saving some money for other essential needs like health and clothing. After consulting with his community people he filed an application for a ration card. However, it was not so easy to get it. Three months passed but despite completing all the formalities required to get a ration card, Atik Bhaans family could not get one. Whenever he visited to enquire about the status, the concerned official and staff gave one excuse or the other and never answered to his queries satisfactorily. Then during one of such visits, he came across a person, who assured him that if he could pay a bribe of Rs 500 he could get his ration card. Seeing no option he somehow managed this amount from his friends and paid it to the person. The ration card was delivered to Atiks place within 7 days.
1.8 REASON FOR PAYING BRIBE

The present study focuses only on bribe paid by BPL households and not about corrupt practices or operational irregularities. Reasons for paying bribe thus do not include reasons like leakages, where citizens are not directly involved. Among the reasons cited for paying bribe by those who paid bribe, getting a new ration card was reported by a high per centage (44 per cent) of the BPL households. Various studies, including the present one, have brought out that many ineligible households in the country possess ration cards meant for BPL families. The second most important reason cited by BPL households for paying bribe, was for taking their monthly quota of food grains. It is no surprise that the high pilferage of the food grains meant for distribution under PDS to the open market leads to scarcity of food grains in FPS and hence the BPL households had to pay extra money to get their quota of ration. This was noticed to be high in the States where off take of their allotted share by states was low. Tamil Nadu, Rajasthan, Gujarat and Bihar among large states; and Chandigarh, Goa among smaller states/UTs showed similar pattern.
44
T o take monthly ration Permission for release of extra quantity during festivals Application for license to sell kerosene oil Deletion & addition of family members in ration card Change of ration shop Surrender ration card/Change in address on ration card Preparation of new ration card
24 2 3 6 7 7 8 8 4 7 11
30
44 45 15 20 25 30 35 40 45 50
10
Urban
Figure 2: Reasons for Paying Bribe by Location (%)
Rural
Urban rural variation was noticeable for reasons like taking monthly ration, where more per centage of rural households paid bribe while among those paying bribe for license to sell kerosene oil was more in urban areas. Almost similar per centage of BPL households, both in urban and rural locations paid bribe for getting a new ration card. Slightly higher per centage of BPL households in urban locations paid bribe to get addition of a name in the ration card.
Food Grains at FPS- Over (charge) and Out (sold in open market) In one of the villages in Assam, Debashish belonging to a BPL family informed that the Fair Price Shop in their locality remains closed most of the times. On being enquired, the reason cited by the shop owner every time was that the supply of food grains from district Headquarters was not reaching. But Debashish as well as other community members strongly felt that this is just a lame excuse. They feel that a large quantity of the rice meant for distribution under PDS was siphoned off to local and nearby grocery shops. The retailer of FPS is considerate enough- once in 3-4 months he does distribute food grains meant for these poor households. But even then the food grains were not available without a service charge. The households are compelled to pay extra per kg. Had there been proper monitoring by PDS staff of shops getting open regularly, households would have been saved from the inconvenience.
1.9 ROUTE
OF
BRIBE PAYMENT
Three-fourth of those BPL households, who paid bribe to avail services in PDS, paid it directly to concerned official/staff or to the dealer of the FPS, while one fifth paid through a middleman. These BPL households due to their low socio-economic profile many a times hesitate to interact directly with the concerned staff and therefore get into the trap of middlemen or agents. In low off take category states, the per centage of households paying bribe through agents was higher. Interestingly, the present study found that apart from agents and middlemen, local representatives like panchayat or ward members also played the role of intermediary. However, agents/middlemen
45
were found to be more active in urban locations while in rural local representatives were more prominent for routing bribe.
Table 7: Route of Bribe Payment
Route
All India (N =1182) Low
State Category by Off take Moderate 74 19 7 High 78 16 6
PDS staff/ FPS dealer Agent/Middlemen Local Representative
74 20 7
66 29 6
Overall, 23 per cent of BPL households paid bribe through middlemen in urban areas against 16 per cent in rural areas. On the other, a higher per centage of rural BPL households (8 per cent) paid bribe to local representatives. Role of middlemen was more in Bihar, Delhi and Chhattisgarh among larger States and in Arunachal Pradesh, Meghalaya and Goa among smaller States and UTs.
1.10 ESTIMATION
OF
BRIBE AMOUNT
Out of the total BPL households in the country, it is estimated that around 2.79 million households paid bribe to avail the service of PDS. Various reasons for which the bribe was paid show that it was as low as Rs. 10 and as high as Rs. 2000.The total amount of bribe paid by BPL households to the PDS department during the past year is estimated to be around Rs. 457.8 million. In other words, on an average a poor household had to shell out Rs. 164 as bribe from their hard-earnings to avail the services under PDS.
Table 8: Bribe Paid for Each Purpose
(Amount of Bribe Paid in Rs.)
Purpose of Bribe paid Preparation of new ration card Change in address on ration card, surrender ration card Change of Ration Shop Addition/Deletion of name from the ration card For license to sell kerosene oil For release of extra quantity during festivals For monthly ration
Extremes 10-1200 15-1000 10-700 20-1000 30-2000 10-500 10-350
Average 218 130 75 169 478 139 60
1.11 WHERE DO STATES STAND?

Positioning of States by off take vis--vis BPL households perception and experience about corruption during 2006-2007 in their respective States is shown in the table below. It is pertinent to mention here that position of States is relative. States like Andhra Pradesh and Himachal Pradesh where off take of food grains is high, the extent of corruption is moderate. Punjab has been rated as state with moderate corruption. This could be due to less dependence on PDS for wheat as also emerged from NSSO report (consumption of
46
PDS wheat was less than 1-2% in major wheat consuming states like Punjab and Bihar-NSSO report on PDS 2004-05).
Table 9: Relative Position of States (in Alphabatical Order)
Categorization by off take of Food grains High Alarming Assam, Arunachal Pradesh, Jammu & Kashmir, Nagaland Moderate Delhi, Madhya Pradesh Jharkhand Kerala, Rajasthan Gujarat Tamil Nadu Uttarakhand Uttar Pradesh West Bengal Low Bihar, Chandigarh, Goa Punjab, Pondicherry Very High Meghalaya Levels of Corruption High Moderate Andhra Pradesh, Himachal Pradesh, Karnataka, Mizoram, Tripura Chhattisgarh, Haryana Orissa, Maharashtra Manipur, Sikkim
In a large number of states where off take is moderate the extent of corrupt practices is noticed to be high or above. However, in some states of NE region, the trend was different. High off take has led to high extent of corruption too.
1.12 SERVICE PROVIDERS PERSPECTIVE

The concerned officials of PDS service admitted that their departments regularly received complaints mostly about delay in getting a ration card, inadequate quantity of ration distributed, and FPS not opening regularly. Overcharging by dealers of FPS is another common complaint. Many a times, service providers could not complete the formalities associated with new and existing ration cards due to lack of documents. This is one of the main reasons why people had to make repeated visits for getting a new ration card or getting change made in the card. Some states are providing information on their websites in order to bring transparency and improvement in service delivery. For example, Know Your Fair Price Shop is available online in states like Andhra Pradesh, Chhattisgarh, Gujarat, Himachal Pradesh, and Madhya Pradesh. It provides detailed information for each Fair Price Shop on issues like stock, price, entries made, number of cards distributed under BPL/AAY/APL. However, it is debatable whether the BPL families would be availing of this information without facilitators such as local civil society groups being active. But states like Uttar Pradesh, Assam, Bihar, Kerala, West Bengal, Maharashtra and even national capital Delhi among others do not provide such detailed information on their websites as yet. Another initiative taken recently in Andhra Pradesh is introduction of Biometric ration card. The department in order to avoid duplication of cards, cards with ineligible families/non-residents and to cover all the eligible families with ration cards has introduced issuance of computerized and
47
laminated ration cards along with bar coded coupons adopting Iris Biometric Technology. The price of the computerized and laminated ration card along with bar coded coupons, valid for three years is Rs.40/- irrespective of APL/BPL card. Another innovative concept introduced by the Government of Gujarat is of a Fair Price Shop Model Center to help the shopkeepers, establish higher level of accountability and to attract customers in larger numbers. Through this Centre, the state aims at providing other facilities for consumers. Consumer products like cosmetics, domestic gas cylinders, and mobile phones recharge vouchers, SIM Cards, Postal supplies etc. are made available at these FPS model centres. To improve and check malpractices, the Gujarat state government has also issued new Ration Cards in exchange of old Ration Cards using the computerized data entry. To hasten the process of service delivery, some states have prescribed a time limit for each service. For example in Madhya Pradesh duplicate cards are expected to be delivered to households within a day under Samadhan Ek Din Mein (Solution in a day). On the other hand in Maharashtra, time limit fixed to issue a duplicate ration card in lieu of a lost ration card is 10 days and 3 days to issue a duplicate ration card in lieu of a torn or damaged ration card. Concerned officials in states like Maharashtra, Madhya Pradesh and Gujarat informed about formation of vigilance committees at village level to monitor the functioning of Fair Price Shops. However, officials felt that more efforts are needed to help curb corruption. People should be sensitised by organising regular campaigns at village level. They felt that this could be done by involving local panchayats and Civil Society groups. The service providers felt that strict, timely and unbiased action against corrupt officials and staff of the department would help in checking corruption. Strengthening of departments vigilance cell was another suggestion made by service providers. Some officials opined that due to more workload, the staff should be increased for better service delivery.
1.13 SUGGESTIONS TO IMPROVE PDS SERVICE DELIVERY

Based on CMS studies on PDS during the last five years, a three-pronged strategy is suggested. The first is to do with information flow and transparency in operations. The second is to do with simplification of procedures, particularly issuing new card and redressal measures. The third is to do with availing newer technologies including the computerization of the system wherever possible. I . Information and transparency a) Display of price, stock and time of distribution at the FPS b) Advance information about next date of distribution II. Procedures and Redressal a. Issuance of new cards, changes in the existing ration card with least procedural delays b. Complaint books and Redressal- Frequent Supervisory visits, interaction with public and mitigation of their problems
48
India Corruption Study 2008 III. New Technologies a. Promoting usage of FM and community radio b. Updating of information on websites for frequent monitoring, verification of information regarding stock, distribution at retailers level.
Besides improving monitoring system and regular inspection of FPS, States could consider some measures for minimizing leakages, checking diversion and improving better compliance of rules and regulations. Right to Food- Government should pass an Act, similar to NREGA, making it mandatory for States to ensure that below poverty line (BPL) population get minimum supplies of food grains per month. Inadequacies in PDS could be included as a justiciable item, fixing accountability on the government functionaries and FPS. Issuance of a ration card which is valid across the state - Since large number of poor households migrates from their native place in search of work, relaxing area restriction would enable them to avail of PDS anywhere in the state. It will also save them from the inconvenience and hassle faced to revisit the Food and Civil Supplies Office every time a household moves out of the native place. Computerisation and use of Information Technology (IT) will increase the level of transparency and accountability in the PDS. Distribution of computerised Ration cards and pre coded coupons or vouchers will keep a check over bogus ration cards. FPS under Panchayat/SHG- Gram Panchayats and Self Help Groups should be encouraged to apply for license to manage Fair Price Shops in their localities. Social audit of Fair Price Shops/PDS dealers- Gram panchayats in association with Civil Society groups under the supervision of a senior district level government official should periodically conduct social audit of all registers maintained at the FPS level. Vigilance committee at Village/Block level -Formation and strengthening of such committee will ensure efficient and timely delivery of food grains to eligible households . States could also ensure that distribution of food grains is done in presence of a panchayat member or government staff. Prior intimation about distribution of Food grains - Announcement about date and time of distribution of food grains over Public Address System or having a fixed date for distribution should be looked into as another measure to improve service delivery. This will minimize the hassle households have to face by visiting the FPS to check whether food grains is distributed or not. Uniform Proportion of Households per FPS- It has been observed that most of the states where Household-FPS ratio is high, the level of corruption is also high. It is therefore expected that government should ensure that proportion of ration card and Fair Price Shop should be such that FPS do not get large quantity of food grains and there by get an opportunity to indulge in malpractices.
49
Eliminating Bogus Cards - Unless ration cards held by ineligible families and bogus cards are weeded out, curbing corruption affecting vulnerable section of BPL households is not going to be an easy task.
OF
FORMULATION
CITIZENS CHARTERS
This draft Citizens Charter for the Rationing Department should be finalized after having a detailed discussion with the concerned Service Providers, Service Seekers and the genuine NGOs representing the concerned Citizens and services. It has been divided into the following subCharters for the1. 2. 3. 4. 5. State Food & Civil Supplies Department/Corporation District Food & Civil Supplies Department Circle Office of Food & Civil Supplies Department Fair Price Shop Kerosene Oil Depot
FOR
CITIZENS CHARTER
1.
STATE FOOD & CIVIL SUPPLIES DEPARTMENT/CORPORATION
The entitlement of ration cardholders and the details of allotment of commodities to the District/Sub-divisions as on ............... (date) should be displayed prominently at the Entry and given due publicity (with the changes made therein). Efforts should be made to introduce single Form for issue of a Ration Card and other related services. Such Forms should be publicized through the Newspapers and the concerned website to enable the service seekers to get them copied and use it. The norms for opening Fair Price Shop and Kerosene Oil Depot are i) Requirments
2.
3.
ii) Forms iii) Documents iv) Special Provisions v) Fees vi) Authorities to be approached vii) Website ID 4. 5. 6. Applications for allotment of Shop/Depot shall be duly acknowledged and replies will be given within. ................. days. Specific mention should be made about penalty against Dealers for defaults in quality and weights & measurements of foodgrains. Complaints about quality and weights & measurements of foodgrains can be made to the following
50
Grievance Redressal Officers Name: Address: Tel. No.: (O) Fax No. Visiting Days & Hours Alternate Grievance Redressal Officers Name: Address: Tel. No.: (O) Fax No. Visiting Days & Hours (R) e-maile ID: Mobile: (R) e-maile ID: Mobile:
VIGILANCE
AND
PUBLIC PARTICIPATION
To review the functioning of the scheme periodically at Shop/ Panchayat level, District/Area level and State/UT level, the Department will constitute Vigilance Committees associating the members from Government, social organisations, consumer organisations, local body members, etc. On the pattern of the Right to Information Act 2005, a provision should be made about the compensation to the complainant if the promised standard of services has been deficient.
TRAINING OF PERSONNEL ENGAGED IN PDS ACTLVLTLES

Training programmes, including workshops, may be arranged in association with the voluntary consumer and social organizations, including youth and women organizations, to train the staff engaged in the delivery of PDS services. The Government may also consider suitable incentives for rewarding good work, while ensuring at the same time that lapses, if any, are dealt with.
Citizens Charter For The District Food & Civil Supplies Department
(Please fill in the following Chart and display it out side the Department) Location of Rationing Offices in .............. (City/Distt.)
Address of Circle Offices Areas Working Days covered & Hours Officer I/c
(with prominent Land Mark)

Details of Services Grievance Redress Officer Name Tel. Fax No.
Alternate person
Name Tel. Fax No. Name Tel. Fax No.
Note: Specific mention be made about penalty on the pattern of the Right to Information Act-2005 against dealers for defaults in quality and weights & measurements of rationed items.
51
Citizens Charter For The Circle Office of Food & Civil Supplies Department
1. After the expiry of specific period for the verification and other reports by the Area Inspector and any other authority, the processing of application should be initiated immediately to ensure timely delivery of promised services. In case the Ration Card is not ready for collection on the date as specified in the acknowledge-ment slip, the reasons for the delay and the likely date by which the card will be available will be invariably intimated. On the pattern of the Central Right to Information Act 2005, a provision should be made about the compensation to the complainant if the promised standard of services has been deficient. Staff should be citizen friendly, courteous and facilitate the visitors in getting various services, including the filling up of forms. Any difficulty faced by the card holders will be resolved within ............ days by deputing appropriate inspecting officials to the FPS under intimation to the card holder. All staff and officials comming in to contact with public in connection with the issue of Ration Cards will wear name badges and will attend to the needs of the public courteously and promptly. The names of officials, their designation, telephone numbers and addresses to whom grievances/ complaints relating to delay or rejection of application for ration cards could be addressed will be prominently displayed at the concerned office premises. Allocation of various commodities to the Districts, Taluks and FPS will be given wide publicity. The Panchayat and Municipality will be informed of the allocation made and quantities actually distributed every month, Information regarding allotment to and issue of commodities from any FPS can be obtained by any body for a period up to ................ months/year from the Distt. Supply Officer on payment of prescribed fee under the Right to Information Act.
2.
3.
4.
5.
6.
Grievance Redress Mechanism for any Deficiency in the promised standard of Services
Phone Nos. Officer to be Approached Meeting Time Office Residence Name Telephone Off. Res. Public Information Officer Any other information
Remarks
Note 1) Salient features of each service should be prominently displayed in simple and easy language at all places likely to be visited by the service seekers. It could be easily visible to the customers.
52
Citizens Charter for the District Food & Civil Supplies Department
(Fill in the following Chart and display it out side the Department) (Standards of Service delivery (Separately for BPL and APL)
Service offered Eligibility Formalities Required Form Documents (Self Attested) Fees Service Payable delivery period Designated Officer Room No. Tel No. Working Conditions for Tatkal Days & Hours Services
Application for New Ration Card (RC) Application for R C Renewal Application for R C Surrender Application for Addition in RC Application for Deletion in RC Application for change of Address in RC Application for change of Ration Shop Application for change in family-head Any other Service like loss of R Card Any other Service like loss of R Card, change in age, etc.
Information About The Fair Price Shops In The Circle

Location of Rationing Shops with prominent Land Marks (Please fill in the following Chart and display it out side the Circle Office)
(As on date ....................................) Location of Rationing Shops Address (where to go) Areas covered Shops Owner & Tel. No. Shops Registration No. No. of Card Holders Working Days & Hours
53
Grievance Redress Mechanism for any deficiency in the Standard of Services

Phone Nos. Officer to be approached Meeting Time Office Residence Name Public Information Officer Compensation to Telephone Complainant Off. Res.
Remarks
Information About The Kerosene Oil Depots Of The Circle

(Please fill in the following Chart and display it out side the Circle Office) Location of Depots with prominent Land Marks (As on date ..............................)
Location of Kerosene Oil Depot Address (where to go) Areas covered Depots Owner Name Tel. No. Depots Registration No. No. of Card Holders Working Days & Hours
Grievance Redress Mechanism for any Deficiency in the Standard of Services

Phone Nos. Officer to be approached Meeting Time Office Residence Name Telephone Off. Res. Public Information Officer Compensation to Complainant Remarks
Citizens Charter Of Fair Price Shop

(Please fill in the following Chart and display it out side the Fair Price Shop) Location of Rationing Shop with prominent Land Marks (As on date ............................)
Entitlement Quality-wise Commodity Quantity in Stock BPL APL BPL APL Rate per Kg. Working Days & Hours
Date of last Inspection
54
Grievance Redress Mechanism for any Deficiency in the Standard of Services

Phone Nos. Officer to be approached Meeting Time Office Residence Name Public Information Officer Telephone Off. Res. Compensation to Complainant
Remarks
Information as on the morning of ...................... ...............(Date/month/Year) Note 1) The Shop will remain closed on .............. (Day) and reopen on ............ (Day) 2) There should be a separate queue for the women, senior citizens and physically disabled card holders. The consumer attached to the FPS will be entitled to inspect the Stock, Sales and Ration Card Registers at the FPSs. Specific mention should be made about penalty on the pattern of the Right to Information Act-2005 against Dealers for defaults in quality and weights & measurements of foodgrains.
3)
4)
For Suggestions/Complaints, contact Name: Designation & Address: Location (with the prominent landmarks) Tel. No.: (O) Fax: (R) e-mail ID: Mobile:
Citizens Charter of the Kerosene Oil Depot

(Please fill in the following Chart and display it out side the Circle Office)
Quantity in Stock Entitlement BPL APL Rate per liter Areas covered Depots owner & Tel No. Working Days & Hours
Location of Kerosene Oil Depot with prominent Land Mark

Information as on the morning of .................. ...................... (Date/Month/Year) Note 1) The Depot will remain closed on .......(Day) and reopen on ......... (Day)
55
Grievance Redress Mechanism for any deficiency in the promised standard of Services
Phone Nos. Officer to be approached Meeting Time Office Residence Name Telephone Off. Res. Information Officer Compensation to Complainant
Remarks
2)
There should be a separate queue for the women, senior citizens and physically disabled card holders. Specific mention should be made about penalty on the pattern of the Right to Information Act-2005 against Dealers for defaults in quality and weights & measurements of supplies.
3)
For Suggestions/Complaints, please contact Name: Designation: Address: Location (with the prominent landmarks) Tel. No.: (O) Fax: (R) e-mail ID: Mobile:
2. Hospital Services
HIGHLIGHTS
Around 80 per cent of the BPL households interacted with a public health service in past one year. Forty eight per cent of the BPL households think that corruption exists in the government health services. More than half of the total BPL households, who interacted, faced one or the other difficulty in getting the required hospital services. Nearly fifty per cent of the BPL households think that corruption had remained same, while another one-fourth think that it had increased during the past one year. Almost 15 per cent of the total BPL households interacted paid bribe or used a contact to get the service. Another two per cent were denied the health services because they could not pay bribe as demanded in the last one year. In most (90 per cent) of the cases bribe was paid to the officials directly. Only 14 per cent of the BPL households think that the department had taken initiatives to check corruption in service. A little more than one-fourth (28 per cent) of the BPL households think that the information is available at the service delivery point. Almost 23 per cent of the BPL households think that grievance redressal services had improved in the last one year.
2.1 INTRODUCTION
Since the independence, Government of India has put substantial effort to provide free basic health care service to people in rural and from vulnerable sections. States are also trying to improve health services with various schemes and many of them targeting the poor. However, going by recent data on the health status of the population, India is nearly at the same level as far as disease burden, anaemia, and child heath is concerned.1 The Government health care service is supposed to be free for BPL households. Per capita availability of beds in all the government hospitals is an indicator of the quality of government health services. Based on this indicator all the states have been categorized into two groups:
1
National Family Health Survey, India, 2005-06
Hospital Services
57
Above Average and Below Average. Subsequent analyses of the survey findings have been done based on such categorization. Further, the scenario of corruption has also been analysed by location considering the most recent nationwide National Rural Health Mission (NRHM) implementation.
State Category Above Average States Arunachal Pradesh, Chnadigarh, Delhi, Goa, Gujarat, Himachal Pradesh, J&K, Karnataka, Kerala, Manipur, Meghalya, Mizoram, Nagaland, Pondichery, Sikkim, Tamil Nadu, Tripura, Uttaranchal and West Bengal Andhra Pradesh, Assam, Bihar, Chattisgarh, Haryana, Jharkhand, M.P., Maharashtra, Orissa, Punjab, Rajasthan and Uttar Pradesh
Below Average
Note: States are arranged in alphabetical order
2.2 INTERACTION
WITH
HEALTH SERVICES
Usage of public health care facility is governed by factors like availability, accessibility, affordability and credibility.
Table 1: Interaction with Health Services
State Category Above National Average Below National Average Total Respondents = 22,728
Rural 78.0 80.5 79.1
Urban 77.8 85.8 81.6
Around 80 per cent of the BPL households across the country interacted with the public health service delivery points during last one year. The extent of interaction of the BPL households with the health service varies from state to state.
2.3 PURPOSE
OF
INTERACTION
Purpose of visit to a health service delivery point has been categorized by type of service sought by BPL households. Overall, main purpose of visits (59 per cent) was as an outpatient for consultation and 32 per cent in-patient for treatment/care Other reasons cited were for diagnostic services, blood procurement pregnancy-related services and getting medical certificate. There is no significant variation for the purpose of visits of BPL households between rural and urban samples and two categories of tates.
Purpose of Interaction As In-patient/For getting beds As Out-patient consultation For Diagnostic services For Blood Pregnancy related services For Medical Certificate/Attestation Total (N) = 18143
Above Average 31 58 9 3 3 2 100
Below Average 33 60 8 1 4 1 100
Note: Total may not add up to 100 because some households visited more than once.
58
2.4 DIFFICULTY FACED DURING INTERACTION

Respondents were asked to describe their experiences during interaction with the health service. Out of the total BPL households who interacted with the health service, 55 per cent faced one or the other type of difficulty in getting the work attended to. Among them, almost 38 per cent complained a procedural problem. About 35 per cent respondents of Below Average states felt that the staff was corrupt against 27 per cent in Above Average states. About 28 per cent of the respondents faced difficulty due to non-availability of staff in Above Average states against 23 per cent in Below Average states. There is no difference in the type of difficulties faced by the rural and urban BPL households. It has been found that staff is perceived to be corrupt in those states where public health infrastructure is relatively poor.
Table 3: Difficulty Factor
(Figures in Percentage) Difficulty Factor Procedural Non availability of forms Absence of staff/doctor Interference of middlemen Corrupt Staff Others All India (n = 11096) Above Average 39 4 28 2 27 1 Below Average 37 3 23 1 35
2.5 PERCEPTION ABOUT HOSPITAL SERVICES

Nearly 46 per cent of the BPL households, who had visited for health service, think that corruption exists in the service. More than three-quarters of the BPL households felt that the level of corruption in the last one year had either increased or remained the same and it is more so in the case of Below Average state category. A greater proportion of the respondents in Above Average states felt that corruption has declined, while the perception is the opposite in case of Below Average states. There is no rural-urban difference among BPL households on this issue.
Table 4: Perception about Corruption
Level of Corruption Increased Same Decreased
All India (n = 18143)
Above Average 20 56 24
Below Average 30 45 25
2.6 MEASURES TO IMPROVE SERVICE

Only 15 per cent of the BPL households, who had interacted with a health service, think that some initiatives have been taken in the past one year to check corruption. Almost one- fourth of the households thought that the information was easily available from the health services. Overall, 23 per cent of the households acknowledge an improvement in grievance redressal system in the past year. There was no rural-urban differential in this regard.
Hospital Services
59
Measures Taken Check against corruption Information Easily Available Grievance Redressal Improved
Above Average 14 28 23

Almost 15 per cent of the total BPL households paid bribe or used influence to get health services. Another two per cent could not avail health services because of demand for bribe, which they could not pay. BPL households staying and urban or rural area had similar experience in paying bribe. It is estimated that nationally almost 0.86 million BPL households were denied health services in a year because they could not pay bribe or did not have a contact to influence.
Table 6: Gateway of Services - Bribe or Contact?
Types of Corruption Paid Bribe Use Influence
Above Average 9 5 2
Below Average 9 6 2
Did not take the service because asked for Bribe
Thrown out of UP Hospital, two Dalit Women Die Kanpur: If it was expected that atrocities against Dalits would become a thing of the past after their icon Mayawati came to power with a BSP majority in UP, it was misplaced. In a shocking incident, two Dalit women died after being thrown out of a government hospital here on Thursday. What will send the state government particularly into a tizzy is that the gruesome assault took place not in some remote district but right in the heart of UP, and that too for the inability of the two women to bribe government health officials with a paltry Rs. 1,000 each barely two hours after they gave birth to two babies. While the incident speaks volumes about corruption in the health department, it also underlines the continuing humiliation of Dalits. Devorati (25), who gave birth to a boy around 5 pm, was the first to die. Her husband Dilip had admitted her to the hospital after bribing an official with Rs. 500. As per government norms, admission to hospitals is free and women coming for delivery should get Rs. 1,400 as an allowance. But, on the contrary, Dilip was asked to pay an additional Rs. 1,000. Soon after childbirth, the medical staff demanded Rs.1,000. When I said I had no money, they threw out my wife despite the fact that she was bleeding and had not regained consciousness, said Dilip. Back in the village, Devoratis condition deteriorated rapidly and died. Within hours, Kamla, wife of Ramprakash of Ambarpur Village, too was thrown out of the hospital just after she gave birth to a girl child when her family members refused to pay a bribe of Rs. 500 and instead demanded Rs. 1,400 under the Janani-Suraksha Yojna meant for pregnant women under BPL category..
Source: Times of India; 11th November, 2007
60

In spite of the noble mission of the government health department, BPL households had to pay bribe to get in-patient beds (34 per cent) in government hospitals. Bribe was paid to get medicines (11 per cent); to get diagnostic services (12 per cent) and even to get out-patient treatment (15 per cent). Significantly, a greater proportion of BPL household in Below Average category states had to pay bribe for diagnostic services or to get medicines compared to those in Above Average category state.
Table 7: Reasons for Paying Bribe
Purpose of Visit As In-patient/For getting beds As Out-patient For Diagnostic services For Blood For Operation For Medicine Delivery (ANC/PNC) For Medical Certificate/Attestation
Above Average 37 19 9 4 10 6 8 7
Below Average 31 12 16 3 7 17 13 3
Note: Total may not add up to 100 because some households visited more than once.
2.9 ROUTE
OF
BRIBE PAYMENT
The bribe was paid directly to doctor/staff/attendants of the health service delivery point. Around 11 per cent of the BPL household used agent or middlemen for paying bribe.
Route Government official/staff Agent/Middlemen Local Representative
Above Average 90 11
2.10 ESTIMATION
OF
BRIBE AMOUNT
Based on this survey, it is estimated that, at all India level, about 3.9 million BPL households paid bribe in the previous year to avail hospital services, which are supposed to be free for public. On an average they have paid Rs. 223 as bribe in a year. Total bribe involved for the year is estimated to be about Rs. 870 million. The amount paid by the BPL households for the health services ranged from as low as Rs. 2 (for getting medicine) and up to Rs. 5,000 (for getting medical certificate) depending upon the situation at service delivery point. In rural areas, on an average, a household paid around Rs. 200 per annum as bribe. It was Rs. 292 in urban areas.
Hospital Services
A Case Study: Tamil Nadu
61
Tamil Nadu: Imtiyaj (name changed) is a physically disabled person from a BPL rural household He has to travel 8 KM to reach a government hospital for getting a disability certificate. Imtiyaj wanted the certificate quickly so as to apply for a job. Knowing the vulnerability of the person, doctor demanded Rs. 9,000, and finally settled at Rs. 5,000. But before paying this amount as bribe, his family has to sell a few of their livestock. Lesson learned from the case study: (a) BPL families are not spared by the health service provider and (b) They had to sell their valuable assets that help them to maintain their livelihood.
2.11 WHERE DO STATES STAND?

States have been further categorized into four levels of corruption - Moderate, High, Very High and Alarming based on composite scores on corruption.
Table 9: Relative Position of States
(In Alphabetical Order)
Levels
Extent of Corruption ALARMING VERY HIGH Kerala Tamil Nadu HIGH J&K , Karnataka MODERATE
Above Average
Big States
Delhi, Gujarat, Himachal Pradesh, Uttarakhand, West Bengal
Small States
Mizoram, Pondichery, Sikkim, Tripura
Chnadigarh, Manipur
Meghalya, Nagaland
Arunachal Pradesh, Goa
Below Average
Big States
Andhra Pradesh, Haryana, Maharashtra, Punjab
Bihar, Jharkhand Rajasthan
Chattisgarh, Uttar Pradesh
Assam, Madhya Pradesh, Orissa
Note: All smaller states stands above national average according to Infrastructure status
Among big states, Assam, Madhya Pradesh and Orissa all of them Below Average have been categorized as Alarming. Among small states, Arunachal Pradesh and Goa fall in this category. Some of the better-known states in terms of health infrastructure like Kerala and Tamil Nadu are also not free from corruption involving BPL households. It may be due to the fact that more number of BPL households in these states were paying bribe due to their higher paying capacity Also, it may be possible that health services are easily available at a price in Tamil Nadu and Kerala.

The government health service providers (medical officers of PHC, CHC and District Hospital) were interviewed regarding problems faced by them and initiatives taken to provide better health services.
62
PROBLEMS
Mostly, systemic problems like lack of specialists, lack of diagnostic services, shortages of functional beds for in-patient care and non-availability of blood was cited by the health service providers. Some of the problems citied specifically in rural areas were unavailability of health service delivery point near habitations, problems in OPD and obtaining birth and death certificates.
Some Initiatives
Rogi Kalyan Samities/ Jeevan Deep Committee is formed in Gujarat, Madhya Pradesh and Chattisgarh Free ambulatory services for poor in Andhra Pradesh, Maharashtra, Karnataka and Tamil Nadu Rajiv Arogya Shree Scheme exists in Andhara Pradesh for free medical care and free medicine Part of hospital development fund is used in Kerala for free treatment of BPL families Customer help desk/toll free number has been introduced in Gujarat and Haryana
Measures to Curb Corruption

Some of the measures or initiatives to improve health services as cited by Medical Officers: Involvement of local representative/PRIs/citizen in planning and implementation were cited in Gujarat, Madhya Pradesh, Meghalaya, Haryana and Chattisgarh Vigilance/inspection committee is active in Kerala, Haryana, Uttar Pradesh and Andhra Pradesh to check financial records Vigilance officer/Special duty officer has been appointed in Delhi and Uttarakhand A concept of Tehsil dDivas has initiated in Uttar Pradesh to resolve complaints of people at the local level. Complaint like payment under different scheme has taken up.
2.13 SUGGESTIONS FOR IMPROVING HOSPITAL SERVICES

A Rogi Kalyan Samiti (RKS) at each public Hospital level needs to be established and functional with more participation of PRIs/citizen. A Hight based movements similar to the approach for education may be adopted by local CBOs/NGOs to demand public health care whenever they are in need. Computers with touch screen facility should be used to the maximum extent for displaying all available services, particularly availability of beds, at that particular point of time in local languages.
Hospital Services
63
Help line numbers should be provided to lodge complaints. At the same time, RKS should take up those complaints regularly. Time-bound service delivery should be made compulsory. RKS should take care to replenishment of consumables including essential medicines to ensure un--interrupted service delivery. Procedure for getting benefits of scheme like Janani Suraksha Yojana (JSY) needs to be simplified so that people do not end up paying for delivery services. Benefit of tele-medicine needs to be extended to reduce direct interaction, if feasible. It will not only reduce corruption but also save transportation cost as well as opportunity cost of accompanying person. Out-sourcing of some of the support services like diagnostic, catering etc. on Private-Public Partnership (PPP) model may be effective in reducing corruption. Users charge may be introduced, and money so collected may be used locally for replenishment of consumables and/or maintenance/repair of minor items of hospitals. Logistics for medicines should be entrusted to a specialized public corporation following the Tamil Nadu example. Social audit system should be in place to maintain the transparent interface with the public and introduce accountability. This draft Citizens Charter for the Government Hospitals should be finalized after having a detailed discussion with the concerned Service Providers, Service Seekers and the genuine NGOs representing the concerned Citizens and services. It has been divided into the following sub-Charters General Information Casualty and Emergency Services Enquiry and Other Information Out Patient Department (OPD) Services Diagnostic Services Indoor Services (General/Private Wards) Mortuary
1. 2. 3. 4. 5. 6. 7.
Citizen Charter
(Name of Hospital ......................................)
64
General Information
Website : http://www............................................
Location - Hospitals Address ....................................................

Main entrance is on ........................................................(Name of well known landmark)
Number of Beds, Doctors, Nurses Etc.

This hospital has a total of ............................. beds i) ii) Emergency ...........beds.............. Occupied............. available Gen. Wards...........beds............ Occupied............. available
iii) Pr. Wards .............beds............ Occupied............... available iv) .................. Doctors (incl. Faculty members, Sr. and Jr. Residents) and v) .................. Nurses.
Casualty Ward for Exact LocationTel No.
Casualty and Emergency Service

Casualty: Tel. Nos. .............................. (timings) Mention if ambulance facility is available to transfer patients or meet any exigency/disaster situation. Specify the details of facilities in Casualty Wards for major specialties, i.e., Medicines, Surgery, Gyane, Orthopedics & Pediatrics, etc. available to attend serious patients and required fees, etc.) Mention (i) If Casualty is equipped with the Emergency Operation Theatre or with modern gadgets like monitors, ventilators, nebulisers, defibrillators, central O2 and suction supply etc. for any urgent treatment. (ii) The availability & their timings of urgent investigations like Blood Biochemistry, Urine, ECG, USG, X-ray, C.T. Scan, MRI etc. (iii) Whether medicines and surgical items available in casualty are provided free of cost. (iv) If there are arrangements for the stay of patients attendants. If yes, its conditions like stay charges, etc. (v) Details of PCOs/STDs, public utilities like toilets, waiting area with Tea/Coffee/ Snacks, Attendants Waiting Hall, parking facilities, etc.
Hospital Services
65
Enquiry and Other Information

Website : http://www............................................ (Please fill in the following Chart and display it prominently out side the Hospital/Enquiry Office) Details of nearest PCOs/STDs, public utilities like toilets, waiting area with Tea/Coffee/Snacks, Attendants Waiting Hall, Parking facilities, etc.
Offices/Details of wards Location Tel. No. with (Land Mark) Ext. Days Timings If any problem, contact Name Central Enq Registration Office/s Medical Supdt Casualty Ward Gen. Ward (Specialty) Private Ward Specialty-wise ICUs Diagnostic Units like X-Ray, ECG, USG, MRI, C.T. Scan, etc Blood Bank Path Lab. Like Urine, Blood, etc Facilities for AIDS Patients Facility-Eye Donation Dialisis & Kidney transplantation Poison Information Centre Organ Retrieval Banking Organisation Social/Medical Worker Chemist Shop Tel. No. Off. Res.
(Guide maps, Display boards/Indicators of various services be prominently installed at various strategic locations.) Places and conditions attached to f acilities like Wheel Chairs & patient statures. Mention the facilities available to senior citizens and physically disabled patients. FOR POOR & BPL PATIENTS Procedure and documents required to obtain free/concessional treatment, drugs or financial assistance should be prominently displayed.
66
Facilities, fees payable for various consultations, tests & medical services to beneficiaries of CGHS, ESI, medically insured and other similar category patients and documents required be prominently displayed.
Grievance Redressal Services

Contact Persons Name Location Tel. No. (Off.) E-mail ID Alternate Person Location Tel. No. (Off.) E-mail ID (Res.) Mobile Timings (Res.) Mobile Timings
If promised services are not provided as per specified standard and time schedule, an effective grievance redress mechanism (including the provision of compensation on the pattern of the Right to Information Act-2005 and recently issued orders by the Delhi Government in respect of Electricity to the concerned citizens should be mentioned For assistance (including financial help for poor and indigent patients) A. Social Guides Location Tel. No. (Off.) E-mail ID B. Medico Social Workers Location Tel. No. (Off.) E-mail ID (Res.) Mobile Timings (Res.) Mobile Timings
Hospital Services
67
OUT-PATIENT DEPARTMENT (O PD ) SERVICES (OPD PD)

(including various Vaccinations and Preventive Healthcare) (Please fill in the following Chart and display it prominently out side OPD) OPD (Card costing Rs. .....................)
Type of OPD Location Tel. No. Days Registration Time & Counter No. Morning Evening
(As on date.............................)
Consultation Time Fee, if any Name Consultant Tel. No. Off. Res.
A. General OPD (Surgery) 1. 2. B. General OPD (Medical) 1. 2. C. Specialty Clinics 1. 2.
Mention (i) Name, location, Tel. No. days/timings, fees, etc. for issue of Medical fitness and other certificates. (ii) Facilities available to senior citizens and physically disabled patients. (iii) Specify if OPDs have facilities like aiting hall with chairs, STD booth, TVs, lifts, ramp for Ortho, public utilities like drinking water & toilets etc. (iv) Visitors Meeting Hours, and Vehicle Parking facility (v) If there is a canteen and grocery shop, medical stores, book shops, general store and STD booths and their timings and location.
Instructions for Specialty and Super-Specialty Clinics

For consultation in Specialty and Super-specialty clinics, one needs to have referred from OPD or a Doctor. Mention conditions like fees, investigations and documents required, etc. to avail the particular facilities.
68
INSTRUCTIONS FOR DIAGNOSTIC SERVICES

(including Bronchoscopy, Endoscopy etc.) (Please fill in the following Chart and display it prominently out side each Diagnostic Service) (As on date.........................................)
Diagnostic Services Location Tel. No. Days Timings &Waiting Period Collection Report Delivery Waiting Period Fee, if any Name of MO I/c
Note : Mention the facilities available to senior citizens and physically disabled patients.
INDOOR SERVICE (GENERAL/PRIVATE WARDS)

(Please fill in the following Chart and display prominently out side all the general/private wards) (As on date.........................................)
Type of Indoor Services Location of the Ward Tel. No. of Public Doctors Visiting Hours Per day Charges* the Ward Visiting Hours Bed Other Morning Evening Consultant Name Tel. No. Off. Res.
A. General Ward 1. B. Medical Ward 1. C. Specialty Ward 1.
Mention i) whether the hospital charges can be waived off in respect of poor and costly drugs/surgical items can also be provided to them by the hospital. If financial assistance is also available through Prime Ministers Relief Fund, NIAF and other such funds. All procedures, operations etc. and if the patient is required to contact the Medical Superintendent Office for admission in Private Wards, and other formalities, hospitalization and other charges (including doctors visit fee, investigation like USG, CT, MRI etc., diet etc.)
ii)
iii) Facilities available to senior citizens and physically disabled patients. iv) If promised services are not provided as per specified standards and time schedule, an effective grievance redress mechanism (including the provision of compensation on the pattern of the Right to Information Act-2005 to the concerned citizen in order to introduce accountability) should be mentioned
Hospital Services
69
MORTUARY SERVICES
(When there is a Medico-legal case, the body is released only after the post-mortem clearance from the Police. While in case of natural death in the Hospital Ward, it is shifted to the Mortuary. It can be claimed only after producing the proof of identity and the relationship with the deceased person.) (As on date ........................) Location:............................................... Tel. No.:..................................... Name of I/c Tel. No. Office:...................... Res.:....................... Mobile:......................... Name of Alternate Officer Tel. No. Office:....................... Res.:....................... Mobile:.......................... Working Hours Documents, etc required to Claim Body by the legitimate claimant 1 2 Availability of Van Charges of the Vans Use
3. School Education
HIGHLIGHTS
It is estimated that forty per cent (21.47 million) BPL households interacted with the School Education service in the last one year. The interaction of the BPL household is higher in above average EDI states. At national level, 3.1 per cent BPL households paid bribe in school education service in the last one-year. The amount paid as bribe by BPL households is estimated to be Rs. 120 million, i.e., Rs. 171 per household on an average. Majority paid bribe for new admission, issuance of certificate and promotion of their children from one class to another. At national level, 28 per cent of BPL households felt that there was corruption in the service. Comparatively, low per cent (20 per cent) of BPL households in the states of Above Average EDI think that there is corruption in School Education. While in Average and Below Average EDI states, 31 per cent BPL households think so. At national level, about 47 per cent of BPL households think that level of corruption in the School Education service has remained about the same in the last one year while 37 per cent think that it has come down. About 18 per cent think that level of corruption has increased. More than 80 per cent of those who paid bribe did so directly to the officials/staff of the school. Nearly one-fourth of BPL households at national level felt that the education service has taken initiatives to check corruption in the last one year. 36 per cent felt that information was easily available in the department and 33 per cent opined that the grievance redressal service of the department has improved now. Over all, corruption level in school education involving BPL households is relatively less than in the case of other ten services covered in this study. The four indicators of access, infrastructure, teacher-related and outcomes used by NUEPA for grading schools do not seem to be directly related to the level of corruption involving BPL households.
3.1 INTRODUCTION
The 93rd Constitutional Amendment1 lays down that State shall provide compulsory and free education to children in the age group of six and fourteen years. To universalize education at
1
See Appendix-I at the end of this Chapter
School Education
71
primary and upper primary levels, the Central Government launched a number of schemes, which include Sarva Shiksha Abhiyan (SSA), District Primary Education Programme (DPEP), National Programme for Education of Girls at Elementary Level (NPEGEL), Education Guarantee Scheme and Alternative and Innovative Education (EGS & AIE) and Mid-day Meal Scheme. The National University of Educational Planning and Administration (NUEPA) has developed an Educational Development Index (EDI)2 to track the progress of Universal Elementary Education for primary and upper primary levels as well as for a composite look at elementary education. Accordingly, on the basis of EDI (2005-06), the States/UTs have been grouped into three broad categories i.e. Above Average EDI, Average EDI and Below Average EDI for the purpose of a comparative study of corruption in school education up to higher secondary level (class I-XII) in different states.
EDI Group Above Average Average Below Average States/Uts Kerala, Delhi, Tamil Nadu, Pondicherry, Chandigarh, Karnataka, Himachal Pradesh, Andhra Pradesh, Mizoram, Sikkim Maharashtra, Gujarat, Punjab, Uttarakhand, Jammu & Kashmir, Goa, Rajasthan, Manipur, Chattisgarh, Haryana Tripura, Meghalya, Nagaland, Orissa, Madhya Pradesh, Assam, Uttar Pradesh, West Bengal, Arunachal Pradesh, Jharkhand, Bihar
Grouping of states on the basis of EDI (2006) by NUEPA
The present study covered BPL households who interacted with the Education service for the purposes of school education up to higher secondary level (class I-XII).
3.2 INTERACTION
WITH
SCHOOL EDUCATION SERVICE
At national level, about 40 per cent of the BPL households in the last one year interacted with the department and/or schools where their wards were going or propose to go. The per cent of such interaction was comparatively low. It can be attributed to several reasons now eligibility of children or not sending their children to school because of poverty or children are dropped to earn for their family livelihood. According to this survey, around three-fourths of the respondents were either illiterate or literate up to primary level only. It could be presumed that such parents generally do not interact with school-teachers very often. Barring Nagaland, where 38 per cent of the BPL households interacted with the service, in all the other North-Eastern states (including Assam), the per cent of interaction with the school or education department was quite low and varied between 22 and 11 per cent in the past one year. The interaction of the BPL households with these services in West Bengal was also one-sixth (17 per cent). All these states, except Mizoram and Sikkim, fall in Below Average or Average EDI states. Other school education indicators are also not encouraging in these states. As per the (2006-07) Annual Report of the Ministry of Human Resource Development, the drop out rates of class I-X in these states, except Manipur where the dropout rate is 43.02, are higher than that of national drop out rate (61.92 per cent).
2
See Appendix-II at the end of this Chapter
72
The other states, where the interaction of the BPL households with the school education or Department was less than 20 per cent, was Chattisgarh. Its drop out rate of classes up to X was also higher than that of national drop out rate. The interaction of BPL households with the school education was higher in the Above Average EDI states and Average EDI states than that of Below Average EDI states. However, there was no difference in the level of interaction of urban and rural households with the school.
3.3 PURPOSE
OF
INTERACTION
One-third of the interaction with Education in the last one year was for admission of children. One-fifth of BPL households interacted with school education to review the performance of their children in the class. Though all the States provide free education up to upper primary level and majority of the States provide free education up to X level, 16 per cent of the BPL households visited schools for payment of fees of one or the other kind. The fees may include monthly charges, examination fee and other charges.
Grouping on the basis of EDI Purpose of Interaction New Admission Review the performance of ward Application for scholarship Seek promotion from one class to another Payment of Fees Teacher-parents meeting Issuance of certificate Check the quality of mid-day-meal Others Households Reporting (N = 8861) 34 21 9 3 16 13 4 3 0.4 Above Average states 37 19 8 3 8 19 3 3 0.2 Average states 28 21 9 2 27 12 3 1 0.2 Below Average states 37 26 9 4 13 7 4 6
Others include: allotment of hostel, attestation of certificate
Thirteen per cent of the BPL households visited schools to attend parent-teachers meeting. In Above Average EDI states, the per cent of the BPL households who visited schools for parentteachers meeting was higher than that of Average and Below Average EDI states. Nine per cent of the BPL households interacted with the school education or the concerned department only to apply for scholarship for their children.
School Education
Table 2: Visiting Three Times or More for Same Purpose
73
Grouping on the basis of EDI Purpose of Visit Application for scholarship Seek promotion from one class to another Not allowed to appear in exam Issuance of certificate Allotment of hostel Households Reporting (n = 1232) 22 9 3 8 0.5 Above Average states 17 8 1.5 9 1 Average states 25 7 5 8 0.6 Below Average states 24 12 3 6
Those BPL households who made three or more visits to school for the same purpose (excluding fee payment, parent-teachers meeting, to check Mid-day Meal, etc.), 58 per cent visited for the purpose of new admission, nearly one-forth (22 per cent) visited in connection with application for scholarship, nine per cent and eight per cent visited school three and more times to find about promotion of their children from one class to another and for taking a certificate, respectively.

Despite commitment to provide free and compulsory education up to upper primary level, BPL households faced problems when they interacted in the last one-year with schools. A majority of those who reported difficulty in interacting with the school, faced procedural problems particularly in admission of their children and getting School-Leaving Certificate (SLC), primarily due to absence of or corrupt staff. Taken together, more than fifty per cent faced these problems during the last one year.
Grouping on the basis of EDI Difficulty Factors Procedural Absence of staff Corrupt Staff All India (N = 2829) 46 21 33 Above Average states 57 14 29 Average states 43 26 30 Below Average states 35 23 41
It is important to note that in Above Average EDI states, higher proportion of the BPL households faced procedural problems. However, problems due to absence of teacher or their corrupt practices like not forwarding/selecting eligible candidate for scholarship, issuance of SLC or not accepting forms to appear in examination at junior high school and above levels were faced by less households in this category of states. In the last one-year, both rural and urban BPL households faced similar kind of difficulty with school education service.
3.5 PERCEPTION
ABOUT
SCHOOL EDUCATION SERVICE
More than one-forth (28 per cent) of BPL households opined that there was corruption in school education, while 41 per cent felt that there was no corruption in school education. Both in urban
74
and rural areas, the views on presence of corruption in the school education were on similar lines. In the perception of nearly half of the households, the level of corruption remained the same in the last one year. More than one-third (37 per cent) felt that the level of corruption in education had come down while 18 per cent felt that the corruption had increased in the last one year. Perception about level of corruption in school education had not changed much on the basis of EDI.
Table 4: Perception About Level of Corruption in School Education
(Figures in Per centage)
Grouping on the basis of EDI Level of corruption Come down Remained same Increased Increased Households Reporting (n = 8861) 37 46 18 18 Above Average states 37 50 13 13 Average states 39 41 20 20 Below Aaverage states 33 47 20 20

More than one-fifth of the BPL households acknowledged that some initiatives have been taken to check corruption and mal-practices in the school education, while more than two-fifths felt that no such measures were taken in the last one year. There were no differences in urban and rural responses on their experience and perspectives in this regard.
(Figures in Per centage)
Grouping on the basis of EDI Measures Taken to Check against corruption Make information easily available Improve Grievance Redressal All India (N = 8861) 22 36 33 AboveAverage states 17 30 31 Average states 30 40 36 Below Average states 19 37 32
Transparency and accountability in the process are prerequisites for improvement in the service delivery. Regarding this, 36 per cent of BPL households felt that the information in the education service pertaining to scholarship, admission process and examinations were easily available now. On being enquired about the use of RTI to get information from the school education or concerned department, only 15 BPL households reported that they had sought information under the RTI in the last one year.

Three per cent of those BPL households, who interacted with the school education paid bribe in the last one year to avail the services. Four per cent had used contact to get the work attended to. Two per cent of the BPL households could not avail the service of school education in the year because they could not pay bribe or use a contact.
School Education
75
Grouping on the basis of EDI Gateway of Services Paid Bribe Used Contact Did not take the service because asked for Bribe All India (N = 288) 3 4 2 AboveAverage states 4 2 1 Average states 1 3 1 Below Average states 4 8 5
Extrapolating the above phenomena, it can be estimated that about seven lakh BPL households paid bribe in the last one year to avail the educational services. Another nine lakh households used a contact; while over five lakh households could not avail these services because they could not pay bribe nor they had a contact to influence.
3.8 REASONS FOR PAYING BRIBE

The present Study concludes that a majority of those who paid bribe did so either for getting their children admitted in the school, getting promotion of their children from one class to another or to obtain the school-leaving certificate.
Migrants in Distress Laxman, a slum dweller of Nandurbar district of Maharashtra, shifted from one slum to another named Kanjarwada. He went to the nearby government school to get his daughter admitted in the fifth class. According to Laxman, the principal directly asked him to pay extra money for the admission. The amount demanded in bribe was not a small amount for him. Since he was quite new in this slum, he did not know any local leader. He visited the school by himself several times and requested the principal to get his daughter admitted in class V. Despite of his repeated visits and requests, the headmaster did not enroll Laxmans daughter in school due to his inability to pay the bribe.. Since there was no other government school nearby, Laxman could not get his daughter admitted in school. It is nearly a year since his daughter is not going to school because her father could not pay bribe to principal for her admission.
In comparison to rural areas, a higher per centage of urban BPL households paid bribe for new admission and issuance of certificate. A higher per cent of rural BPL households paid bribe for promotion of their children from one class to another and for obtaining scholarship.
Table 7: Reasons for Paying Bribe By Location
BPL Households Paid Bribe Reasons New Admission Low attendance of child/promotion Application for scholarship Issue of certificate Others Urban 40 28 3 27 2 Rural 33 32 12 21 2
76

FOR
3.9 ROUTE
BRIBE PAYMENT
Table 8: Route for Bribe Payment
Grouping on the basis of EDI Route All India (n = 300) Official/staff Agent/Middlemen Local Representative 86 12 2 Above Average states 82 16 2 Average states 76 20 4 Below Average states 95 5
A higher per centage of respondents paid bribe directly to concerned officials/staffs of the school or concerned department. Twelve per cent of them paid it through middlemen or agent.
The Poor Pay to get their Children Educated I have worked as a mere daily wage labourer all my life. Regular income had been a constant challenge. Despite of my limited income, I have always wished to educate my children. This was the dream of Manohar Naik from Khurana village in Koraput district of Orissa. A dream, which was put to test as soon as his son passed Class VII standard examination. Since the school was only up to VII standard, Manohar had to look for his sons admission into a new school. When he approached the new school for admission, he discovered it was a lot more expensive proposition than he imagined. Manohar requested the principal to give him some extra time to arrange for the money but when he reached the school with the money he was informed that the admissions were closed. Manohar was up set with the response of the school authority. In the meantime, he came to know that if he pay bribe his son would get admission. Manohar paid Rs. 500 as bribe and his son could get admission in the same school. However, the amount he paid as bribe was not small amount for Manohar Naik. He arranged the amount by borrowing it on a higher interest rate from a local moneylender. It took six months to return the borrowed money. According to Manohar, he had to pay around Rs. 300 as interest. Hence, he paid a total of Rs. 800 to the moneylender.
3.10 ESTIMATION
OF
BRIBE AMOUNT
In the last one year, it is estimated that about 0.7 million BPL households paid bribe in school or concerned department across the country. The total amount paid as bribes in the last one-year by the BPL households is estimated at Rs. 120 million. On an average, a BPL household had to pay Rs. 171 as bribe in the last one year for one or the other purpose related to school education. Compared to other categories, the average amount paid as bribe was maximum for allotment of hostel.
Table 9: Bribe Paid for each Purpose
Bribe paid for each purpose New Admission Low attendance of child/promotion Application for scholarship Issue of certificate Allotment of Hostel
Range 20-1000 20-1000 10-1000 10-1000 100-1000
Average 167 145 170 194 392
School Education
77
3.11 WHERE DO THE STATES STAND?

Perception and experience of the BPL households with corruption in school education vis--vis grouping of states by Education Development Index (EDI) brings out that the extent of corruption was High and Moderate in states with Above Average EDI. However, the extent of corruption was alarming in states like Bihar. Goa, Meghalaya and Uttar Pradesh and very high in Assam, Jammu & Kashmir, Madhya Pradesh and Manipur.
On the basis of EDI Index Above average
ALARMING
VERY HIGH
HIGH Chandigarh, Delhi, Kerala, Tamil Nadu, Pondicherry,
MODERATE Andhra Pradesh Himachal Pradesh Karnataka Mizoram, Sikkim Gujarat, Haryana Maharashtra Punjab Uttarakhand
Average
Goa
Jammu & Kashmir, Manipur
Chattisgarh, Rajasthan
Below average
Bihar Meghalaya, Uttar Pradesh
Assam Madhya Pradesh
Jharkhand Nagaland
Arunachal Pradesh Orissa, Tripura, West Bengal
It suggests that where the school education related service was functioning better, the level of corruption in the service was moderate. The moderate level could be due to active citizenry or social pressure. Because of sizeable SC/ ST population in states like Arunanchal Pradesh, Orissa, Tripura and West Bengal, the NGOs working for the community welfare are more active in education sector.

The concerned officials at the department level and Principal/Senior teacher at the school level shared that the complaints they generally receive relates to poor quality of education in the schools, irregular classes and irregularity of teachers. According to them, parents/guardians also come with the complaints regarding poor quality of Mid-day-Meal or poor sitting arrangement in the classes. Apart from this, people visit with queries related to scholarship, admission and issuance of certificates. The teachers/officials were of the view that they are over-burdened, as is evident from teacherstudent ratio. Besides, teachers are involved in other activities such as census, election, preparation of voter lists etc that affect their regularity in classes and quality of teaching. Hence, they were of the view that the infrastructure of the school was not adequate and that affects the quality of education. According to them, it is very common that more than one class is conducted per classroom. Teaching learning materials like educational chart, books (other than text books),
78
black boards, sports materials are not adequately available. According to them, though the deciding authority for these matters is higher officials of the department but teachers are blamed for all this. However, officials felt that despite all odds, the concerned department and school staff was working with sincerity and making all efforts to improve education at school level. They opined that there was no corruption in schools or the concerned department. Officials felt that further improvement was possible only with improvement in the school infrastructure and building a conducive environment for teaching-learning.
3.13 SUGGESTIONS
TO
IMPROVE SCHOOL EDUCATION SERVICES
Based on the findings of the study, following measures could help to check the corruption in the school education. Procedure of new admission / issuance of certificate should be made more transparent and publicised by involving Village Education Committee in the process. Area-wise designated schools to ensure that no child of the concerned area is left without education. Head of each school should be made accountable. Improved infrastructure like provision of upper primary and secondary level schools, conducive teaching learning environment particularly in the locality/proximity of BPL population will not only provide better educational opportunities to poor households but it will also check corruption in school education. Selection of students for scholarship based on merit and should be done in consultation with gram panchayat, so that deserving students get benefited. Discretionary nature of beneficiary selection needs to be minimised. The Village Education Committee (VEC) should be sensitised for better monitoring of schools functioning as well as keeping community informed about their Right to Education and raising voice against corruption in school education. Social Audit of school education by civil society groups should be initiated periodically, i.e., once in two or three years. Representation of BPL households in Parents-Teachers Association and VEC should be encouraged. Private schools making inroads with school education in many states, public-private participatory model so that children of BPL households stand benefited. The need for repeat visits to schools for admission and other documents should be reduced by simplifying the procedures. Citizens charter specifying the standards of education related services should be prepared after having a detailed discussion with the concerned Service Providers, Service Seekers and the genuine NGOs representing the concerned Citizens and services. It has been divided into the following sub-Charters for the
School Education 1. 2. 3. Education Department District Education Office Primary School

FOR
79
CITIZENS CHARTER
EDUCATION DEPARTMENT
(It should be prominently displayed out side the Education Department/Directorate) 1. The norms for opening a Primary School and its responsibilities are as follows i) ii) iii) iv) v) vi) vii) 2. 3. Requirments Forms Documents Special Provisions Fees Authorities to be approached Website ID
Applications for registration of a School shall be duly acknowledged and replies will be given within ...................... days. Efforts should be made to simplify Application Form for opening a School. Such Forms should be made available on the concerned website to enable the Applicants to get them copied and use it. On the pattern of the Central Right to Information Act 2005, a provision should be made about the compensation to the complainant if the promised standard of services has been deficient. Any complaints can be made to the following
4.
5.
Officers Name: Address: Tel. No.: (O) Fax: Visiting Days & Hours Alternate Officers Name: Address: Tel. No.: (O) Fax: Visiting Days & Hours (R) E-maile ID: Mobile: (R) E-maile ID: Mobile:
80
Vigilance And Public Participation

To review the functioning of the Schools periodically, the Department will constitute Vigilance Committees at the District and State/UT levels associating the members from Government, social organisations, consumer organisations, local body members, parent-teachers, etc.
Citizens Charter for the District Education Department/Office

(Please fill in the following Charts and mention the website ID. This may be displayed out side the District Education Office prominently) Session Starts from .................................................... A. Location of Government Primary Schools in ........................... (City/Distt.) (with prominent Land Marks) (As on date.........................................)
Name Address of (where School to go) Up to which class Medium of instructions Boys/ Girls/ Both Name of Any Person I/c Speciality with Tel. e.g., No Off./ Disabled Res Children Details of Reservation Boarding Facilities Whether Working Mid-day Days Meal & Hours
B. Location of Municipal/Local Bodies Primary Schools in ....................... (City/ Distt.) (with prominent Land Marks) (As on date .........................................)
Name Address of (where School to go) Up to which class Medium of instructions Boys/ Girls/ Both Name of Any Person I/c Speciality with Tel. e.g., No Off./ Disabled Res. Children Details of Reservation Boarding Facilities Whether Working Mid-day Days Meal & Hours
C. Location of Government-Aided Primary Schools in ........................... (City/ Distt.) (with prominent Land Marks) (As on date .........................................)
School Education D. Location of Private Primary Schools in ........................... (with prominent Land Marks)
81
(City/Distt.)
(As on date .........................................)

CITIZENS CHARTER
OF
PRIMARY SCHOOL
(Please fill in the following Chart and mention the website ID. This may be displayed prominently out side the School) Session Starts from __________________________
Classes Criteria for Admission incl. Age Formalities Required
(As on date.........................................)
ExtraLast Date of Designated curricular Application Officer facilities Form Documents Appli- Adm- Details of Other Room Tel. No. (Self No. cation ission Periodical Attested) Charges Fees Payable
Pre-primary - Nursery - KG Primary First Second Third Fourth Fifth
82
Infrastructural Details Eligibility Formalities Required Form Documents (Self Attested) Fees Payable
Designated Officer Remarks Name Room No. Tel. No.
School Leaving Certificate Transportation Medical Check up & First Aid Library Computer & Lab Facilities 1) Scholarships 2) Fee Concession S. Worker & Counselor Canteen Drinking Water Separate Toilets, etc. Welfare Activities
Grievance Redress Mechanism

(As on date.........................................)
Officer to be Approached Meeting Time Phone Nos. Office Residence Information Officer Name Telephone Off. Res. Any other information Remarks
Note: 1. These should be prominently displayed in simple and easy language at all places likely to be visited by the admission seekers. It could be easily visible and understood to them. 2. 3. Staff should be citizen friendly & courteous and facilitate the visitors in getting various services, including the filling up of Forms. The names of officials, their designation, telephone numbers and addresses to whom the visitors are expected to contact for various services and their grievances/ complaints will be prominently displayed at the concerned office premises.
School Education 4.
83
On the pattern of the Central Right to Information Act 2005, a provision should be made about the compensation to the complainant if the promised standard of services has been deficient.
For Suggestions/Complaints, contact Name : Designation : Address : Location (with prominent landmarks) Tel. No. (O) Fax: (Res) E-mail ID: Mobile:
84
APPENDIX-I TE) BILL RIGHT TO EDUCA TION (R DUCATION (RTE)

(Based on Times of India Reports on November 1, 2008) The Right to Education (RTE) Bill, as approved by the Union Cabinet on October 31, 2008, will make education a fundamental right for every child in the 6-14 age group. If RTE becomes law, it would empower the six-year-old 86th Constitutional Amendment that made free and compulsory education a fundamental right. The RTE Bill sets down guidelines for States and the Centre to execute and enforce this right. Earlier, education was part of the directive principles of state policy. The legislation has a host of features that stress not only on reaching out to every child in the 6-14 age category but also on quality and accountability of the state and education system. To ensure that the law gets effectively implemented, the Bill has provisions prohibiting teachers from undertaking private tuitions as well as not letting them being used for non-educational purposes. To ensure that parents have equal stake in the system, the Bill provides for School Management Committees in all government and aided schools to monitor and oversee the working of the school, manage its assets and ensure quality. There is also a provision that teacher vacancy should never exceed more than 10 per cent of the total strength. To monitor the implementation of the law, it proposes a National Commission for Elementary Education to be headed by a Chairperson.
Education as Right to Cost Rs 120 Billion a Year

To cost the exchequer nearly Rs 120 billion every year, even private unaided schools would not be out of its ambit since 25 per cent of seats would have to be reserved for poor children in the neighbourhood. On its part, the Centre would reimburse the cost to these schools. While stating that both the Centre and states would be responsible for the finances, it said the Centre would prepare the capital and recurring expenditure and provide it as grants-in-aid to each State from time to time. The Group of Ministers (GoM) also decided to consult the finance commission for additional resources. However, the share between the Centre and states is yet to be decided. However, Times of India in its editorial on November 3, 2008, inter alia, opined that education requires substantive, not just symbolic action. Merely passing laws, without sustained political attention that plugs yawning financial and administrative gaps in the school sector, is going to fail. One of the problems of taking a purely legislative view is to define who will be held responsible if a child doesnt attend school. Will it be the local body, the state government, the Centre, the childs guardians? There is plenty of scope for passing the buck, and we dont have the full details of the Bill. A related problem is to set out clearly who will pick up the bill for universal education. Its supposed to be split between Centre and states, but the precise formula for doing so and whether states are on-board with the scheme is unknown. The most controversial provision of the Bill is to drag the private sector in, by imposing an obligation on to take in at least 25 per cent
School Education
85
of its students from disadvantaged backgrounds. Their fees will supposedly be paid by the government, a promise its unlikely to keep. Providing free education for all should be unambiguously the governments responsibility. Countries havent made rapid strides towards universal literacy by palming off the responsibility on the private sector. That will stunt the growth of the private sector rather than lead to universal literacy. The private sector, however, can act as a force multiplier and take some of the governments burden off if the right incentives are given to it. For that to happen, it must be allowed to run on private sector principles. Corporates should be encouraged to set up their own chains of branded schools, which would both serve their human resource needs and disseminate quality education across the country. To draw in the best professionals its necessary to legitimise profits in education and provide autonomy to the private sector. The government should also envisage private-public collaborations where it throws in some combination of money, land, scholarships and tax breaks, but leaves the management of schools in professional hands. Out-of-the-box thinking is called for to provide education the big bang it sorely needs.
86
EDUCA TION DEVEL OPMENT DUCATION VELOPMENT
APPENDIX-II INDEX (EDI) - 2006-07
(Based on Times of India Reports dated October 13, 2008) Kerala is ranked No. 1 among the 21 major states (large in geographical area) In the latest composite Education Development Index (EDI) prepared for the primary and upper primary levels of schooling for 2006-07. Delhi comes second, followed by Tamil Nadu, Himachal Pradesh and Karnataka. The report on the EDI, released by Union human resources development ministry in New Delhi on Oct. 10, was prepared by the National University of Educational Planning and Administration (NUEPA) based on the District Information System for Education (DISE), a comprehensive database on elementary education in India, which is had created in recent years. The indicators used in computing the EDI included access, infrastructure, teachers and outcome. In the broader sense, we had used 23 indices like number of schools per 1000 child population, average student-classroom ratio, pupil-teacher ratio, gross enrolment ratio and gender parity index, a source in NUEPA said. Interestingly, Delhi is the only Top 5 state, which has improved its overall position in terms of infrastructure in primary and upper primary schools. None of the other first five ranked states could improve their respective positions in the infrastructure index. Higher infrastructure index indicates that most of the schools in Delhi have got drinking water, common toilets and girls toilet facility, which is not true for other four states Kerala, Tamil Nadu, Karnataka and Himachal Pradesh, which were in the Top 5 last year, the report said. Bihar and Jharkhand are ranked 35 and 34 in case of composite primary and upper primary levels of education with an EDI as low as 0.321 and 0.381, respectively, which is much lower than the same compared to the top ranked states. In most of the 21 major states, the teachers index was found to be higher in upper primary level compared to primary level. However, the same is not true for outcome index, consisting of GER, examination results, GPI, dropout and repetition rates, etc. In this set of indices, Tamil Nadu replaced Kerala and Delhi both at Primary (EDI, 0.735) and Upper Primary (EDI, 0.763) levels. Next to Tamil Nadu are Himachal Pradesh at Primary (EDI, 0.683) and Kerala (EDI, 0.693) at Upper Primary levels, the report said. The NUEPA has suggested that all the States including the top ranking states should analyse all the indicators used in EDI computation district-wise, and within a district, block-wise and follow it up by adopting appropriate strategies without which neither their overall ranking nor status of universal elementary education in the state are expected to improve.
4. Electricity Service
HIGHLIGHTS
It is estimated that at national level around 53 per cent (around 28.4 million) BPL households interacted with the electricity service during the last one year. The proportion of interaction of the BPL households with the department varied in three categories of States. The highest proportion (67 per cent) of the BPL households interacted with the service in the last one year in Better-Rated states followed 52 per cent by Average Rated states and 35 per cent in Below Average rated states. At national level, nearly 10 per cent (2.7 million) of the BPL households, who interacted with the electricity service, paid bribe. A total estimated amount paid as bribe by the BPL households in the year was Rs. 1,040 million. Around one-third of the BPL households paid bribe for getting new connection (in rural areas 36 per cent and in urban areas 28 per cent). The second highest per centage (nearly 23 per cent) paid bribe to get their faulty meter corrected (in urban areas 26 per cent and in rural areas 21 per cent. At national level, 44 per cent of the BPL households felt that corruption existed in the department. Nearly half of the BPL households in Below Average Rated States and 46 per cent in Average Rated States and; lowest per cent (38) in Better-Rated States felt that corruption existed in the electricity services. Further, nearly half of the BPL households felt that the level of corruption remained same in the last one-year. Only 22 per cent opined that the level of corruption in the last one year had come down. In Better-Rated states, 30 per cent were of the view that corruption in the electricity had decreased in the last one year. Those BPL households who paid bribe, more than eighty per cent paid it directly to the official/staff of the service. Very less per centage of the BPL households at national level think that the electricity department had taken initiatives to check corruption and improving grievance redressal service. However, 23 per cent of the BPL households think that the information was easily available in the department.
4.1 INTRODUCTION
Electricity service is one where reforms have been initiated in most of the States. Supply of electricity is still largely in the domain of the public sector, although there has been privatization of generation and distribution in some selected areas. The BPL families consume electricity at a basic level-mostly to operate lights, fans and television. Several States have initiated special targeted schemes for poor like no bill or slab, free installation and mafi (waiver) of old dues.
88
States Grouping** Better rated states Andhra Pradesh Gujarat Delhi Karnataka West Bengal Goa Himachal Pradesh Maharashtra Below Average Rated States Sikkim Mizoram Jharkhand Arunachal Nagaland Bihar Manipur Jammu and Kashmir 14.03 7.13 4.00 3.41 3.19 -3.06 -6.67 -6.69 55.81 54.46 50.87 46.92 46.24 44.96 43.09 35.41 Final Scores* States Grouping*

Final Scores*
Average rated states Kerala Tamil Nadu Pondicherry Assam Rajasthan Punjab Chandigarh Chattisgarh Uttaranchal Tripura Meghalaya Uttar Pradesh Haryana Madhya Pradesh Orissa 31.63 29.72 29.72 28.46 27.80 27.69 27.69 27.45 27.06 26.51 24.91 24.38 23.75 21.97 21.25
*CRISIL-ICRA State Power Sector Performance Ratings, Report (June 2006) ** CMS grouping of states (Better rated, Average Rated and Below Average Rated states)
Apart from State Governments initiatives, the Central Government has launched schemes for the rural electrification and to benefit BPL households in the country from time to time. Rajiv Gandhi Grameen Vidyutikaran Yojna (RGGVY) is one such scheme, launched in April 2005 and implemented in 139 districts by the Central Government. Under the Scheme, free electricity connection is given to BPL households. So far, 235 projects under the Scheme were taken up for implementation in the Tenth Five Year Plan. Under the Kutir Jyoti Programme, launched in 1989 to provide single point light connection to BPL households in rural areas, 8,51,760 connections were released. . This Scheme has now merged with RGGVY. Overall, until 25th January 2008, nearly 22.87 million BPL connections were released across the country.
The Rural Electricity Infrastructure and Household Electrification under (RGGVY) was introduced in April 2005 for achieving the National Common Minimum Programme objective of providing access to electricity to all rural households over a period of four years. As per the Ministry of Power records, about 0.115 million villages and 23.4 million BPL houses (nearly 44 per cent of the total BPL households in the country) are yet to be electrified.
According to 2006 CRISIL and ICRA performance ratings of the State power sector operations for Ministry of Power, the states have been classified accordance to their performance in power sector in three categories, i.e., better rated states, average rated states and below average rated states to analyse the data on electricity services.
4.2 INTERACTION
WITH
ELECTRICITY SERVICE
More than half of the total BPL households interviewed across the country interacted with the electricity service during the last one year. This interaction is lower in comparison to other basic
Electricity Service
89
services like PDS and hospital. A comparatively high proportion (67 per cent) of BPL households interacted with the service in the States that rated better on power performance. In Andhra Pradesh, for example, as high as 91 per cent of BPL households interacted with the service. In the states like Goa and Himachal Pradesh, it was more than 80 per cent. The per centage of BPL households interacted with the service decreases with the lower ranking of the States. However in some average-rated states like Orissa, Meghalaya and Uttar Pradesh, less than twenty per cent of the BPL households interacted with the electricity service. Per centage of BPL households interacting with the service in the last one year was comparatively higher in urban areas (58 per cent) than in rural areas (50 per cent).
Table 1: Interaction with the Service
(Figures In Percentage)
By rating of states
Households Reporting (n = 22,728) Usage of Service 53 Better rated 67 Average rated 52 Below average rated 35
4.3 PURPOSE
OF
INTERACTION
In the last one-year, the BPL households interacted with the electricity service for different purposes. An overwhelming majority (more than 80 per cent) interacted with the service for bill related issues, i.e., to deposit the bill, to get the excess/erroneous bill corrected, etc. The other reasons for interaction were new electricity connection/ restoration of connection and meter related issues (8 per cent each). In comparison to average rated and below average rated states, a lesser proportion of the BPL households interacted with the service for new connection/ restoration of connection in better-rated states in electricity sector. The reason for this may be due to higher per centage of electrification in this category of states may be low interaction of the BPL households with the service for new connection because many of the villages (about 19 per cent) are yet to be electrified.
By rating of states Purpose of Interaction Bill Related Issues Meter Related New/Restoration of Connection Regular/ better supply Households Reporting (N = 11980) 86 8 8 1 Better rated 92 5 4 0 Average rated 82 9 11 2 Below average rated 86 8 10 2
Visiting Three Times or More for Same Purpose

Of those BPL households, who visited three or more times to the service for the same purpose in the last one-year, 37 per cent each visited for bill related works (other than bill payment such as correction of over billing, non-receipt of bills etc., and restoration of connection. It is followed by 28 per cent visiting for new connection. Nearly one-fourth each interacted with the service three times or more in the last one year to get their faulty meters corrected and seeking regular supply.
90

By rating of states Purpose of Repeat Visits Bill Related Faulty Meter Meter Installation New Connection Restoration of Connection Regular Supply Households Reporting (n = 2415) 37 24 6 28 37 24 Better rated 43 24 10 22 43 24 Average rated 33 25 4 36 33 25 Below average rated 43 19 5 28 43 19
The study reveals that even in the States rated better and average, the BPL households had to make repeat visits mostly to get their bill related work and restoration of connection attended to.

The difficulty faced by BPL households in interacting with the electricity service was mainly due to procedural factors, followed by corruption, absence of staff and interference of middlemen. At the national level, the highest per centage of the BPL households faced procedural problem to avail the service. Although BPL households are entitled for free electricity connection (under the Central Government schemes) but the procedures to avail the benefit are complicated. In about half of the cases, BPL households in Better and Average-rated States faced procedural difficulty while in the Below Average rated states, 43 per cent attributed it to the corrupt staff. Hence, this study reveals that the Electricity Departments even in better rated States have a long way to go to provide hassle-free service to the BPL households.
By rating of states Difficulty Factors Procedural Corrupt Staff Absence of Staff Interference of Middlemen All India (N = 6211) 46 37 19 4 Better rated 47 31 20 7 Average rated 50 38 14 3 Below average rated 33 43 30 3
4.5 PERCEPTION
ABOUT
ELECTRICITY SERVICE
At national level, nearly half of the BPL households felt that the level of corruption in the electricity service continued to be the same. The same trend was observed among all the three categories of states. The highest share (85 per cent) of BPL households in the Below Average rated states felt that there was corruption in the electricity service. Comparatively less proportion of the BPL households in the Better and Average-rated states felt that there corruption in the service is coming down.
Electricity Service
Table 5: Perception about Level of Corruption in Electricity Service
91
By rating of states Level of corruption Come down Remained same Increased Households Reporting (n = 11980) 22 49 29 Better rated 30 47 23 Average rated 19 50 32 Below average rated 15 52 33
Interestingly, the proportion of BPL households who thought that corruption remained the same as in the previous year was nearly equal for all categories. Further, Better Rated states were able to check corruption to some extent, at least as far as the perception of the BPL families is concerned.

At the national level, 15 per cent of the BPL households acknowledged that the electricity department had taken initiatives and developed mechanism to check corruption in the service. The remaining was either unaware of any such initiatives or disagreed that the electricity department had taken any such initiative to check corruption. Ranking category-wise, the per centage of BPL households, who think that the electricity department had taken initiatives to improve the service, was higher in Better-Rated states.
By rating of states Measures Taken to Check against corruption Make information easily available Improve Grievance Redressal All India 15 23 21 Better rated 18 32 27 Average rated 12 17 18 Below average rated 14 19 15
Easy access to information about procedures and the processes to avail the services is a prerequisite to improve service delivery and make it user friendly. Regarding this, at national level 23 per cent of the BPL households acknowledged that the information in the electricity service was now easily available. Comparatively, higher proportion of BPL households in Better-Rated states acknowledged improvement in providing information and grievance redressal in Electricity service in the last one year than in other category of states. Very few BPL households had used RTI to obtain information about electricity service in the last one year. Only one-fifth of the BPL households at national level felt that the grievance redressal service in the electricity department had improved in the last one year. However, majority (58 per cent) of BPL households at national level did not see any change in grievance redressal in the last one year. More than one-fifth (21 per cent) of the BPL households felt that the grievance redressal in the electricity department had deteriorated. However, in the Better-Rated states, 27 per cent of the BPL households felt that the grievance redressal had improved in the last one year.
92

There was a gap between the perception about the existence of corruption and the actual experience of bribe paid or use of a contact to avail the services. At the all India level, nearly ten per cent of the BPL households paid bribe in the last one year to get their work attended to, while nearly five per cent used a contact to do so. Nearly two per cent did not take the service in the last one year because they could not give bribe.
By rating of states Gateway To Avail Service Paid Bribe Used Contact Did not take the service because asked for Bribe All India (N = 11980) 9.7 4.6 1.8 Better rated 5.6 2.3 1.4 Average rated 11.9 5.8 2.1 Below average rated 12.0 6.2 1.6
In the category of better-rated States, a lower proportion of the BPL households paid bribe or used a contact to avail the services.
Bribe for Getting Erroneous Bill Corrected Tilak, a small vendor of a village of north Tripura, received electricity bill of around Rs. 3500. This was a quite big amount for this poor man. He made repeated visits to the electricity office to get it corrected but to no avail. One day a lineman visited his house to disconnect his line. On intervention of some local people, the lineman gave him few days to deposit the amount. The lineman also indirectly told him that it was a matter of erroneous calculation and it would be solved if he pays bribe to concerned official, otherwise his line will be disconnected. Tilak had no other way but to follow the advice of the lineman. He paid Rs. 400 to the concerned official to get the bill corrected.

Since the present study focuses only on bribe paid by BPL households at the citizen contact point, it is interesting to note that although BPL households are supposed to get free connections underRajiv Gandhi Grameen Vidyutikaran Yojna (RGGVY), 30 per cent in the rural areas paid
Table 8: Reason for Paying Bribe by Location
(Figures In Percentage) Bribe Paid Reason for Paying Bribe Bill Payment To reduce/Adjust excess Bill To remove/correct faulty meter Meter installation New connection Restoration of connection Regular supply Urban 18 15 26 7 28 3 4 Rural 13 15 21 6 36 2 6
Electricity Service
93
bribe in the process of getting the new connection. On the other hand, a higher proportion of urban BPL households paid bribe for a new connection. Overall, more than one-fifth of those who paid bribe did so to get their faulty meter corrected/ repaired/fixed. In comparison to rural areas, BPL households paying bribe in connection with bill payment or to fix a faulty meter was higher in the urban areas.
4.9 ROUTE
OF
BRIBE PAYMENT
More than four-fifths of those who paid bribe to avail of Electricity service paid it directly to concerned official/ staff. Nearly one-fifth did so through a middleman. The same trend was observed in respect of all categories of States.
By rating of states Route of Payment Electricity official/staff Agent/Middlemen Local Representative All India (n = 1151) 81 18 1 Better rated 79 21 1 Average rated 81 18 1 Belowaverage rated 84 16 -
4.10 ESTIMATION
OF
BRIBE AMOUNT
On the basis of the trend of paying bribe in the Electricity service, it is estimated that around 5.1 per cent (2.7 million) out of the total BPL population in the country paid bribe for electricity service in the last one year. The total amount paid in the last one year by the BPL households is estimated as Rs. 1,040 million. On an average, a BPL household paid Rs. 381 as bribe in the last one year. However, a wide variation in the range of amount of bribe paid was observed for different reasons. The average amount paid as bribe was highest for a new connection. The bribe paid was more in the urban areas than in the rural areas.
Table 10: Bribe Paying for Each Purpose
(Amount of Bribe Paid Rs.)
Reason Bill Payment To reduce/Adjust excess Bill To remove/correct faulty meter Meter installation New connection Restoration of connection Regular supply
Extremes 4 -1000 4 -2200 20- 3000 20- 2000 20-5000 50-800 20-1500
Average 198 333 202 337 655 186 143
94

The relative position of the States in terms of corruption has been prepared taking into account both the perception of the BPL families regarding corruption as well as the actual payment of bribe in the Electricity service. The table below shows that, except Goa, none of the states of Better-Rated states were in having alarming level or very high level of corruption. More than half a dozen of the states have corruption levels that are moderate, while seven states have high corruption levels as per the indices constructed for the study.
( In Alphabetical Order )
Extent of Corruption Grading of the states* Better rated states ALARMING Goa VERY HIGH HIGH Andhra Pradesh, Delhi, Maharashtra, Average rated states Assam, Meghalaya Kerala, Rajasthan, Uttar Pradesh Chattisgarh, Tripura MODERATE Gujarat, Himachal Pradesh, Karnataka, West Bengal Chandigarh, Haryana, Orissa, Punjab, Pondicherry, Uttara Khand Below average rated states Bihar, Jammu & Kashmir Manipur, Nagaland Arunachal Pradesh, Jharkhand, Mizoram, Sikkim
*On the basis of CRISIL and ICRA performance rating of states in power sectorm
Madhya Pradesh, Tamil Nadu,
The level of corruption is on alarming proportion in Assam and Meghalaya among the Average Rated states and in Bihar and Jammu & Kashmir among the Below Average Rated states. On the other hand, Gujarat, Himachal Pradesh, Karnataka and West Bengal among the better-rated states had moderate level of corruption.

According to the officials of the Electricity service, the general complaints they receive from the consumers are fault in the lines and transformers, interrupted supply, low voltage, etc. Erroneous meter, excess billing and non-issuance of bill are also common complaints received by the office. Apart from this, the office also receives complaint against the delay in attending to the fault by linemen and the staffs. The officials were of the view that for some of the complaints like interrupted supply, nothing can be done at the local level because the supply depends on the generation unit or sub unit. They also admitted that the complaints like fault in the line or transformer is not attended immediately because of shortage of staff. Generally, it takes time to attend to complaints of faults in the line in rural and remote areas due to inadequate staff strength.
Electricity Service
95
Many of the States have computerized the electricity service to a large extent. According to the officials, the computerization of the department has improved service delivery system. However, according to them, the benefit of the computerization of the service is limited mostly to urban consumers. The officials were of the view that both staff and the public/consumers are responsible for the corruption. They suggested that the general public should be made aware on the issue and they were also of the view that stern action should be taken against the staff involved in negligence and corruption.
Statewide Attention on Public Grievance by Application of Technology SWAGAT is an innovative concept that enables direct communication between the citizens and the chief minister of Gujarat. In Gandhinagar, the fourth Thursday of every month is a SWAGAT day wherein the highest office in administration attends to the grievances of the man on the street. Grievances are logged in, transmitted and made available online to the officers concerned who have to reply within 3 to 4 hours. The departments concerned then have to be ready with the replies, before 3 p.m., when the Chief Minister holds videoconferences with all the districts concerned. Applicants are called one by one and the chief minister examines each complaint in detail. The information sent by the department is also reviewed online in the presence of the complainant and the Collector/District Development Officer/Superintendent of Police and other officials concerned. Attempts are made to offer a fair and acceptable solution on the same day and no applicant has ever left without any firm reply to his grievance. The record is then preserved in the SWAGAT database and a separate log is maintained for each case
Several Information Technology applications in the electricity service like online billing, viewing of bills, payments and complaint handling etc. have improved the ease of the consumers in some of the states like Delhi, Andhra Pradesh and Himachal Pradesh. Some of the states like Maharashtra, Uttar Pradesh, Rajasthan and Punjab have implemented or made steady progress towards setting up of Consumer Grievance Forum. Even the bill payment has been made trouble free in Delhi by involving private sector Easy Bill outlet.
4.13 SUGGESTIONS
TO
IMPROVE ELECTRICITY SERVICES
To improve the service delivery, the department may improve its monitoring system to keep regular watch on the functioning of the officials/staffs. The following initiatives may be taken to improve the service delivery system and thereby to check the corruption. Computerisation of the service delivery points at all level- Such an action will not only fasten the service delivery system but will also improve the services, like online billing, online complaint, monitoring the complaint status etc. Setting up of Village Electricity Management Boards - On the model of Nagaland, the State governments should consider transfer this responsibility to Village Councils. This will bring transparency and accountability in the system and the villagers will not have to make repeated visits to avail most of the services. But delegating this responsibility to local bodies requires funds, skilled manpower and regular monitoring of the functioning of Village Councils. Process of new connection should be made easier- The study reveals that majority of the BPL households visited the electricity department three times or more for the purpose of new connection. Also, the majority paid bribe to get new connection. The department may
96
India Corruption Study 2008 make the process of new connection easier and transparent through the effective implementation of the concerned Citizens Charters..
Installation of electronic meter- the electricity department should ensure that only good quality meters are installed. Faulty meters lead to problems like over billing. Nearly oneforth of the BPL households made repeated visits and paid bribe to electricity service to get their faulty meter corrected and other problem caused by such meters. Awareness grievance redressal system - All the consumer-related information on grievance redressal system, service standards, compensation clauses, etc. should be printed in the Electricity Bills for the awareness of the consumers
4.14 EXEMPLARY INITIATIVES - DELHI

1. 2. 3. 4. 5. 6. Privatisation of electricity distribution (Discom) Setting up of Consumer Grievance Redressal Forums with independent jury Tie-up with more than 400 Easy Bill outlets to facilitate bill payments Electricity office within three kms. radius of every consumer Appointment of Electricity Ombudsman vested with the responsibility of adjudicating disputes between the electricity consumers and the Discoms. Suo motu compensation to consumers within the stipulated time for deficiency in services.
Services Stipulated Time Compensation for each day
(i) (ii)
Power-failure due to bloom fuse Broken Service Lines and bigger problems like faults in distribution line, high tension mains failure or transformer burn out
Within 3 hrs Within 6 hrs 12 hrs
Rs 50/Between Rs 50/and Rs 200/-
(iii) Maintenance of meters (including Tempering) outside the residential premises is the responsibility of Discom (iv) Help Line 24 7
Discom foots the bill for deficiency in service Times of India dated Oct 18, 2008
The Delhi Electricity Regulatory Commission (DERC), the power regulator, after taking heed to the number of rising complaints against discoms, directed all Delhi based discoms to automatically start issuing suo motu compensation to consumers, if their complaints were not addressed within the time-limit stipulated in the performance standard regulations notified by the Delhi government. Delhiites are now officially taking discoms to task for deficiency in services. Over 120 consumers serviced by discom BSES Yamuna and BSES Rajdhani have claimed compensation for poor services and have been given the amount in their bills as suo motu compensation. The compensation amount ranges from Rs 150 to Rs 2,400 and complaints are mostly meter related. Some of the areas where BSES has defaulted in services include meter testing, burnt meter, load reduction etc. Compensations pertaining to consumers of East Delhi amount to more than those of other areas.
Electricity Service
97
A senior BSES official admitted, We have issued compensations to about 100 consumers, which has been reflected in their latest electricity bills. NDPL, the other discom which caters to consumers in north Delhi, is yet to submit a report to Delhi Electricity Regulatory Commission (DERC) on how many consumers have been paid compensation in their bills. The power regulator, after taking heed to the number of rising complaints against discoms, directed all Delhi based discoms to automatically start issuing suo motu compensation to consumers, if their complaints were not addressed within the time-limit stipulated in the performance standard regulations notified by the Delhi government. Said a senior official: Most of the consumers lodged complaints against discoms on their help line numbers and keeping this in mind, we asked discoms to compensate them automatically in their power bills. Regulations have been notified by the government to improve discom services. Discoms, meanwhile, are not happy with this compensation scheme. Pointing out anomalies in the scheme, a senior discom official said that not all time was it the fault of the discom if a complaint could not be addressed within the fixed time frame. Discoms also claimed that it was not feasible to automatically compensate every consumer for default in services and said that only those consumers should be compensated where they had personally represented the case and sought damages. DERC was, however, firm that the system had to be consumer friendly. Experts added that no consumer would take the trouble of writing a complaint and taking it up with Consumer Grievance Redressal Forum (CGRF) or Public Grievance Cell (PGC) for tiny compensation amount.
richi.verma@timesgroup.com
5. Water Supply Services

HIGHLIGHTS
It is estimated that around 14 per cent BPL households (7.5 million) interacted with the Water Supply Service during the last one year. Of the total, 9 per cent households paid bribe to avail water supply services during the last one year. The total amount of bribe paid by these households in the water service department during the last one year is estimated to be around Rs. 239.4 million. About 15 per cent of households either paid bribe or used a contact to avail water supply service during the last one year. Installation/maintenance of hand pumps was reported among reasons cited for paying bribe by nearly half of the BPL households. Of the households who visited for purpose other than paying bill, 56 per cent visited three times or more for the water supply service during the last one year. Majority (60 per cent) of them interacted three times or more for installation/maintenance of hand pumps. About 42 per cent of the households thought that corruption exists in the department. Around one-fourth of the households felt that corruption had increased, while half of them believed that the level of corruption had remained unchanged in the last one year. Of those who paid bribe to get their work done in the last one year, 81 per cent paid bribe directly to the department official/staff. About 16 per cent households felt that measures taken by the government had checked corruption in Water Supply services to some extent.
5.1 INTRODUCTION
Water is a basic and essential need of all households. For poor households, availability of subsidized and regular water supply through different government schemes plays a crucial role to meet their daily requirements for drinking, sanitation and irrigation. National Water Policy (2002), among many initiatives, aims at subsidized water supply to the disadvantaged and poorer section of the country.1
http://wrmin.nic.in/ (National Water Policy 2002)
Water Supply Services
99
The Accelerated Rural Water Supply Programme (ARWSP) was introduced in 1972-73 by the Union Government to assist the States and Union Territories (UTs) to accelerate the pace of coverage of drinking water supply. The scheme aims at ensuring 40 litres per capita per day of drinking water, one hand pump or stand post for every 250 persons and availability of water source within 1.6 km in plains and 100 metres elevation in hilly areas.
2.17 Lakh Villages Lack Potable Water According to an affidavit filed in Supreme Court recently, the Central Government admitted that a majority of people living in 2.17 lakh villages were facing serious problem as their drinking water sources were polluted by chemicals. Under rural drinking water supply, the survey done indicated that there are 216,968 rural habitation affected by poor water quality fluoride affected 31,306 villages, salinity affected 23,495, iron affected 118,088, arsenic affected 5,029, nitrate affected 13,958 and multiple factors affected 25,092, said the affidavit filed by health ministry. Take for example the 31,306 villages affected by excess amount of fluoride in drinking water. This causes a dreaded and incurable disease fluorosis in human beings and animals which leads to mottled teeth, dental carries, stiffened brittle bones and joints, metabolic disorders and even paralysis in advanced stage. Majority of these villages fall in Haryana, Delhi, Rajasthan, Gujarat and Andhra Pradesh. The Centre assured the Supreme Court in just one line: The government is giving emphasis for tackling water quality problem. Up to 20% funds of the Accelerated Rural Water Supply Programme (ARSWP) are specifically earmarked for tackling water quality problems, the ministry said. It informed the court that under Bharat Nirman scheme, a plan was afoot to build rural infrastructure in four years time. Rural drinking water is one of the components of the said plan and under this, it is envisaged to address the problem of quality of water, it added. The dreaded arsenic poisoning of drinking water sources is acute in West Bengal and also prevalent in UP, Madhya Pradesh and Assam, where surveys have identified people suffering from arsenic lesions.
Source: (Times of India, dated November 19, 2008)
The National Drinking Water Mission (NDWM) introduced in 1986 was renamed as Rajiv Gandhi National Drinking Water Mission (RGNDWM) in 1991. A number of habitations, which were covered under ARWSP, have however slipped back to be not covered or partially covered due to failure of water source. Bharat Nirman, conceived as a plan to build rural infrastructure within a four-year period (2005-06 to 2008-09), has drinking water supply as one of the components. Uncovered as well as the partially covered habitations will be fully covered by 2009. As drinking water supply is a State subject, implementation responsibility rests with them irrespective of central assistance. In terms of coverage of habitations for water supply under Bharat Nirman Programme, better performing States have been categorized as Above the National Average as the better ones, while States low on target performing as Below the National Average. However, better targeted does not necessarily mean that all habitations of these States have been covered with water connectivity.
100

Table 1: Habitations Covered under Bharat Nirman (Coverage during 2005 - 2007)
States/UTs
Percentage of Habitations Covered against Target Set
States/UTs
Percentage of Habitations Covered against Target Set
Above National Average Manipur Pondichery Uttar Pradesh Mizoram Chattisgarh Madhya Pradesh Assam Orissa Sikkim Haryana Gujarat Himachal Pradesh Karnataka 373 172 117 99 92 82 80 76 70 67 64 58 58
Below National Average Bihar Kerala Tamil Nadu Rajasthan Uttarakhand Goa Meghalaya Maharashtra Tripura Andhra Pradesh Punjab Arunachal Pradesh Nagaland Jharkhand Jammu & Kashmir West Bengal 57 54 52 52 50 50 49 45 43 43 43 41 40 32 22 17
Source: http://ddws.nic.in/
5.2 INTERACTION
WITH
WATER SERVICE
Of the BPL households surveyed, 14 per cent interacted with water service for one or the other purposes during the last one year. The purpose could be broadly divided into two categories recurring and non-recurring. Recurring visit is for bill payment at the designated outlet, while non-recurring would include interactions made for connection and service related issues like getting a new connection, repairing of meters, water pipe and hand pumps etc. The percentage of BPL households visiting water supply service was more in Above Average states (17 per cent) compared to Below Average states (12 per cent). One of the possible reasons of more interaction could be more coverage of habitations in the former states for operation and maintenance of water supply. There is a marked difference between rural and urban in the extent of interaction of BPL households. In urban area, 22 per cent BPL households interacted with water service while it was only 11 per cent in rural areas. Rural households are more likely to rely on community sources like wells, tube-wells and natural sources of water (e.g., spring, river, etc), whereas in urban slum households largely depend on piped water supply. More urban households have individual connections and are required to pay water bills. So interaction of urban BPL households is more compared to their rural counterparts.
101
5.3 PURPOSE
OF INTERACTION
Of those who interacted with water supply service in the last one year, nearly 40 per cent visited for bill payment. About 36 per cent visited for installation/ maintenance of hand pumps in the last one year. About 7 per cent households visited for supply of water tankers, while 6 per cent visited for repair of water pipe
Purpose of Interaction Bill payment Installation/maintenance of hand-pumps Supply of water tankers Irrigation water Repair of water pipe Regularization of unauthorised water connection Water meter installation
All India (n = 3277) 39 36 7 6 6 4 3
.Interaction for the purposes of supply of water tankers and regularisation of unauthorised water connection were reported in the urban slums, while visit for the purpose of irrigation water was reported in the rural area.
Visiting Three Times or More

The study brought out that the BPL households had to make repeated visits to the concerned office for purpose other than to pay the water bill indicating that they do not get priority attention at the concerned department during their visits. Of the households who visited for purpose other than for paying monthly bill, as high as 56 per cent had to make three or more visits to the water supply service during the last one year. A break up of reasons for which these households interacted thrice or more brought out that majority (60 per cent) of these BPL households interacted for installation/maintenance of hand pump.
Table 3: Visited Three Times or More or Same Purpose
Purpose for repeat visits Installation/maintenance of hand-pumps Supply of water tankers Irrigation water Repair of water pipe Regularization of unauthorised water connection Water meter installation
All India (n = 1109) 60 10 10 8 6 6
One out of ten BPL household visited the water supply service three times or more for water tankers. It is pertinent to mention here that water tankers are required when the households do not get the regular water supply. The repeat visits for water tankers in urban slums indicates that
102
the service providers do not give priority in arranging tankers. About 8 per cent households interacted three times or more for repair of water pipe to maintain piped water supply.

Of the BPL households, who visited for water supply service, nearly half of them faced no problem in getting their work done. Among the households who faced difficulties, 41 per cent of them held that procedure involved made it difficult to get the work done without repeat visits. Nearly one-third of the BPL households faced difficulties due to corrupt staff. Staff absenteeism was a problem for 23 per cent BPL households, requiring them to visit the concerned office several times.
Difficulty Factor Procedural Corrupt Staff Absence of Staff Interference of Middlemen
All India 41 31 23 5
5.5 PERCEPTION
ABOUT
WATER SUPPLY SERVICE
About 42 per cent of the BPL households interacting with the system thought that there is corruption in water supply service. The proportion of BPL households who believed that corruption exists in the service was more in Below Average States than in States which showed better fulfilment of targets for water supply.
53 31 21 29 17
60 50 40 30 20 10 0
48
Respondents (%)
Bette r Group of States
Low
Increased
Same
Came Down
Figure 1: Perception about Level of Corruption in Water Department by Category of States (%)
On being enquired whether corruption had increased or decreased in water supply service in the last one year, about one-fourth felt that it had increased while half of the respondents believed that the level of corruption had remained unchanged in the last one year. In low target fulfilled States, higher proportion (29 per cent) of BPL households felt that corruption in water service had increased compared to 21 per cent in States with better target achieved ones.
103

When asked if initiatives taken in water supply service have checked corruption, only 16 per cent of the BPL households replied in the affirmative, while the rest either disagreed or showed their unawareness about any such initiatives. Relatively high proportion (18 per cent) of BPL households in the rural areas believed that corruption was being checked compared to the percentage who thought so in urban (13 per cent).
Measures Taken to Check corruption Make information easily available Improve Grievance Redressal
All India 16 24 22
Easy access to information about procedures and processes to avail the services is a pre-requisite to make the services user friendly. About 76 per cent BPL households felt that information on documents required for installation of meter and detail information on the procedures to be followed for regularisation of unauthorised water connection or change of faulty meter was not easily available. Easy access to information was reported to be slightly more in rural area (26 per cent) than in urban (22 per cent). Only about one-fourth BPL households acknowledged that the concerned staff attended to their grievances in the last one year.
12 Respondents (%) 10 8 6 4 2 0
11 9 6 4 6 6 4 7 4
All India
Better
Category of St ates
Low
Paid Bribe
Used contact
Could not avail
Figure 2: Gateway of Services-Bribe or Contact?
5.7 Experience of Corruption

Of the BPL households, who interacted with water supply service in the last one year, 15 per cent had either paid bribe or used a contact for availing the services. About 4 per cent of them could not avail the services since they could not afford to pay bribe in the last one year. A higher proportion (11 per cent) of households paid bribe in the Below Average states compared to the Above Average states (6 per cent). Higher demand for installation of hand pumps and piped water connection in the Below Average states could be one of the reasons for such a trend.
104

Installation/maintenance of hand pumps constituted nearly half of the cases for paying bribe in the last one year. About 11 per cent households paid bribe to regularise the unauthorized water connection. Similarly, 11 per cent of them paid bribe for the repair of water pipes and 7 per cent for supply of water tankers. It may be noted here that in urban areas, potable water is supplied through tankers freely subject to their availability in the event of non-availability/short supply of water at a particular location.
Helpless Poor Shyam Ahuja is a resident of Najafgarh in Delhi whose water meter had stopped functioning. He promptly registered a complaint in the Water Supply Department. But no action was taken on his complaint. He recalls, I made innumerable visits to the Water Supply Department to plead them to take an immediate action but each time they sent me back with some lame excuse. Without a functional meter, I was unable to verify my bills so I was unable to make the payments. A year passed away making rounds to the water supply department.. Then one-day Shyams water supply was disconnected without any notice due to non-payment of bill. He was compelled to make the payment without any verification. However, even after paying the bills, the supply was not restored. Shyam recalls, Life without water even for a day is so difficult but here the department did not care if days passed away without any water supply. We had to now purchase water with our meagre income. I made several frantic visits to the department but the indifference continued. Then one day a water department staff took me aside and told me that my work could be done if I was willing to pay Rs.300. After spending a lot in the visits to the department and then purchasing water; I was completely stressed out. I knew I had no choice so I decided to pay the bribe to finally get the meter repaired!
Relatively, a high percentage of BPL households in urban area paid bribe for regularization of unauthorised connections, for issues related to water bill and for supply of water tankers. In rural areas, paying bribe was more for installation/maintenance of hand pumps and for irrigation water.
7 10 9 4 7 9 8 45 53 0 10 Rural Urban 20 30 40 50 60 8 13 1
Irrigation Water Repair of water pipe Supply of water tankers Water meter installation Regularization of unauthorized water connection Bill payment Installation/Maintenance of hand pumps
14 11
Figure 3: Reasons for Paying Bribe by Location (%)
105
5.9 ROUTE
OF
BRIBE PAYMENT
More than four-fifths of those who paid bribe to get their work done in the last one year, directly to the department official/ staff. Nearly one-fifth of them paid the money to the agent/middlemen. Agents/middlemen were found to be more active in urban locations, while bribe paid directly to department official/staff was more in rural areas.
Route Department official/staff Agent/Middlemen Local Representative
All India 81 18 1
Rural 83 16 1
Urban 78 20 1
5.10 ESTIMATION
OF
BRIBE AMOUNT
Out of the total BPL households in the country, it is estimated that around 0.67 million households paid bribe to avail water service in the last one year. The total amount of bribe paid by these households to the water supply service during the past year is estimated to be around Rs. 239.4 million. In other words, on an average a BPL household had shelled out Rs. 357 as bribe to avail water service. The range of bribe amount paid varied significantly from as low as Rs. 10 to as high as Rs. 3,700. For the purpose of installation/ maintenance of hand pumps the range of bribe amount was high as compared to small repair of hand pumps. As such, the average amount of bribe paid varied depending upon the nature of services availed. The average amount of bribe paid for bill payment, repair of water pipe, supply of irrigation water and water tankers was in the range of Rs. 101 to Rs. 194, while the average bribe paid for installation of water meter and installation/maintenance of hand pumps was higher. The reasons for paying bribe were:
Table 7: Purpose-wise Ranges of Bribe Paid
Bribe Paid for Each Purpose Installation/Maintenance of hand pumps Bill payment Regularization of unauthorized water connection Water meter installation Supply of water tankers Repair of water pipe Irrigation Water
Range 30-3700 10-500 20-1500 30-1000 35-1000 20-500 20-600
Average 509 101 350 228 194 149 179

A comparison of states based on their target achieved during 2005-2007 vis--vis BPL households perception and experience about corruption (as shown in the table below) shows little correlation between the extent of official targets and the extent of corruption experienced by BPL households.
106

Table 8: Level of Corruption Relative Position of States
Coverage of Habitationsa gainst target set Below Average
ALARMING
VERY HIGH
HIGH
MODERATE
Jammu & Kashmir, Nagaland, Tamil Nadu
Goa, Jharkhand, Meghalaya
Arunachal Pradesh, Bihar, Kerala, Maharashtra, West Bengal
Andhra Pradesh, Punjab, Rajasthan, Tripura, Uttarakhand, Chandigarh, Delhi, Gujarat, Himachal Pradesh, Karnataka, Mizoram, Sikkim
Above Average
Assam
Chattisgarh, Madhya Pradesh, Orissa
Haryana, Manipur, Pondichery, Uttar Pradesh
Among Above Average states, the level of corruption is found to be Alarming in Assam, while among Below Average states it is alarming in Jammu & Kashmir, Tamil Nadu and Nagaland. Despite better achievement in terms of physical coverage, the extent of corruption is very high in the States of Madhya Pradesh, Chattisgarh and Orissa.

Regarding Complaints and Problems: The concerned officials of the water services across the country held that their department regularly receives complaints on issues like unavailability of clean and regular water supply and leakage through burst of water pipes. Faulty meter readings, excess bill and procedural delay are other common complaints. Blockage in pipe due to high iron content is a common problem in Tripura, while the supply of water is inadequate in Meghalaya due to hostile terrain. In Punjab, BPL households complained of accumulation of water in low-lying areas during rainy season. Households in slum areas mostly complained about the old and rusted water pipes, which lead to frequent leakage. They opined that many a times, due to lack of information and complete documentation, households have to make repeated visits for getting a new connection or for repair/ installation of a meter or hand pump. Despite the fact that people faced so many problems in getting full and prompt water supply services, receipt of complaints was negligible in most of the States. In States of West Bengal, Gujarat, Tamil Nadu, Andhra Pradesh, Kerala, Uttar Pradesh, Karnataka, Maharashtra, Bihar, Delhi, Uttarakhand, Punjab, Haryana, Tripura, J&K, Himachal Pradesh, Sikkim, Arunachal and Pondicherry, the officials did not receive any written complaint during the last one-year. Meghalaya, Orissa, Jharkhand, Madhya Pradesh and Chandigarh are among the States where very few verbal complaints were made. While officials in Mizoram and Goa reported to have received very few written complaints, the office staff had received as high as 50 written complaints in Rajasthan in the first three months of 2008.
107
Regarding Pro-poor Initiatives: In order to provide easy and better water supply services for BPL population, most States have taken some pro-poor initiatives which include supply of water tankers free of cost, free or subsidized connections, involvement of Panchayati Raj Representatives for better service, opening of new counters & complaint booths, accelerated & additional water supply and extension of water lines. To provide potable drinking water, new water treatment plants have been set up in Jharkhand. Special squad of engineers has been formed to look after the technicalities of water supply system in Rajasthan. Frequent field visits and lab testing of water are undertaken to maintain the quality of water in Bihar. In Orissa, local Self Employed Mechanics have been selected at the Panchayat level and have been trained to look after the day-to-day maintenance of tube wells in the rural areas and inform major breakdowns to Junior Engineer. In Jammu & Kashmir, under the Million Wells Scheme (MWS), financial subsidy up to Rs.30,000/ - is provided to the poor, small and marginal farmers living below the poverty line, especially persons belonging to SC/ST and freed bonded labourers for digging of irrigation wells.
Regarding Measures to Curb Corruption

Concerned officials in States of West Bengal, Madhya Pradesh, Kerala, Orissa and Bihar informed about the formation of vigilance committees at village level to monitor the functioning of water service. Social audit was conducted in Punjab, while vigilance awareness week was celebrated in Meghalaya. In Kerala, special periodical training was provided to the staff to help curb corruption. Separate division on a 24 hour-basis is operating in Jammu & Kashmir to look into the status of corruption. In Jharkhand, computerized billing was introduced as a part of streamlining work processes. Call centres have been operating in States of Madhya Pradesh and Jharkhand to speed up redressal mechanism. The service providers felt that strict, timely and unbiased action against corrupt officials and staff of the department would help in checking corruption. Further strengthening of departments vigilance cell was another suggestion made by service providers.
5.13 SUGGESTIONS
TO IMPROVE
WATER SUPPLY SERVICES
Access to water being a basic requirement, concrete measures should be taken to address problems related to Operation and Maintenance (O&M) for ensuring smooth supply of water on the one hand, and to reduce corruption in water supply services for the BPL households on the other hand. Based on the findings of this study, a multi-pronged strategy is suggested. The first and the important strategy should be decentralisation of water supply services, followed by recruitment of more staff and involvement of local mechanics to address the operation and maintenance problems. The third strategy should be to organise special campaigns and awareness programmes to help the BPL population for articulation of their problems.
108
Involvement of panchayats: The responsibility of operation and maintenance of hand pumps should be decentralised and handed over either to the village panchayats or to civil society groups. Regularization: For dealing with illegal connections special campaigns for regularization should be held where such instances are reported more frequently, with offer of some concessions and waiver of dues. Supply of water tankers: Supply of months should be decentralised and needs. To facilitate the water supply, Tanker Scheme may be launched to hour call centre. water tankers in low availability areas or in the summer civil society groups should be roped in to attend to local on the lines of Hyderabad and Secundrabad (A.P.), Dial a provide the same within the stipulated time through a 24-
Staffs Accountability: Absence of staff makes the situation much worse in the rural areas where repair of hand pumps remain unattended. Hence, the staff should be made accountable, besides to fill the vacant positions, to provide better and prompt services. Involvement of Local Mechanics: Self Employed Youths at the Panchayat level should be selected and trained to look after the day-to-day maintenance of tube wells in the rural areas and inform major breakdowns to higher authorities. Articulation of problem: BPL users need to be aware about Where, When and How to Contact so that they should communicate their problems properly and promptly to the concerned authorities, followed by regular monitoring of grievance redressal. Till this culture comes into practice, particularly among BPL households, improvement in redressal cannot be much different. Getting involved: There should be special incentives for the BPL households for the formation of Water Users Association (WUA) for their involvement in the operation, maintenance and management of water infrastructures/facilities at the village level. Campaigns: Special campaigns in areas selected on the basis of low community pump density should be organized for sanctioning /installation of hand pumps. During such campaigns, special assistance should be offered to BPL communities for filling up of forms and completing other procedures. Citizens Charter: Appropriate Citizens Charter, mentioning the standards of various service deliveries with deterrent punishment for any deficiency in the promises, be formulated and implemented.
6. National Rural Employment Guarantee Scheme (NREGS)

HIGHLIGHTS
Across the country around 7 per cent (0.96 million) of rural BPL households paid bribe to avail the benefits of NREG Scheme during the last one year. The total amount of bribe paid by rural BPL households to the NREGS department during the past year is estimated to be Rs. 71.5 million. 40 per cent of the rural BPL households surveyed, interacted with NREGS. Out of these, 61 per cent interacted to get registered as a beneficiary household. Among rural BPL households, who interacted with the concerned office or staff for NREGS during the last one year, 37 per cent said that staff was corrupt. Around 47 per cent of the rural BPL households hold the opinion that corruption exists in the department. 31 per cent of the BPL households felt that corruption level has in fact increased over the last one year. The study showed that 14 per cent of the BPL households, who interacted for NREGS, either paid bribe or used contact to avail its services. Half of the BPL households, who paid bribe, did so to get registered as a household willing to work under the NREG scheme. More than half the BPL households, who paid bribe, paid it directly to the concerned government staff or for NREGS. Only 13 per cent of BPL households felt that initiatives taken in the last one year to check corruption in NREGS had been effective. Eight out of 10 households believed that there had been no change in situation or it has deteriorated, as far as redressal of their grievances related to NREG Scheme is concerned.
6.1 INTRODUCTION
Espoused by the Indian government as a notable pro-poor initiative, the National Rural Employment Guarantee Scheme (NREGS) was initiated in select 200 districts during its first year in 2005-06, and was extended to another 130 districts in the second year of its implementation. The scheme launched under The NREG Act, which came into existence in 2005, has been extended to all 604 districts of the country from 2008-09. The scheme aims at enhancing livelihood security of rural households by providing 100 days of unskilled manual work every year to households in the country. Two years of implementation of NREGS vindicates the self-targeting, demand-based nature of the programme. Although the programme is not confined to BPL families, experience shows that it is mainly the poor households willing to do manual labour who seek work under NREGA.
110
Though NREGS has provided employment to 34.2 million households till May 2008, it has also been fraught with charges of corruption and irregularities in implementing the scheme. BPL households, which could benefit greatly from the scheme, have often complained of instances of fudged job cards, incomplete and fake muster rolls, delayed payment of wages, missing names or signatures and funds siphoned off. However, the present India Corruption Study focuses only on corruption faced directly by BPL households and not systemic irregularities in the operations of NREGS and it pertains to the districts included in the first round. To understand BPL households perception and experience with the NREGS service, the study interacted with 13,487 BPL households from rural areas of 27 States where NREGS scheme was under implementation
6.2 INTERACTION
WITH
NREGS
During the previous one year, 40 per cent of the rural BPL households surveyed interacted with the panchayat representatives and the concerned government staff, who are responsible for execution of activities under the NREG Scheme. States where less than one-third of the BPL households interacted with NREGS including the North-eastern states, J&K, Kerala, Orissa, Punjab and West Bengal. Low interaction could also be attributed to fewer activities being carried out under NREGS in the villages visited during the previous one year.
6.3 PURPOSE
OF INTERACTION
61 per cent of these rural BPL households who interacted with the NREGS did so to get registered to work under the NREG Scheme. In States where the percentage of BPL households interacting for this purpose was more than two-third, were Andhra Pradesh, Arunachal Pradesh, Chhattisgarh, Gujarat, J&K, Orissa, Kerala and Rajasthan. After getting registered, households next level of interaction is to get the job card. 23 per cent of rural BPL households interacted to get the job card. Besides interacting to get registered or to get a job card, rural BPL households, who worked under the NREGS, interacted with the concerned officials to collect their wages.
Demand for unemployment Wage payment Issuance of job card Gett ing select ed as beneficiary/registrat ion
BPL Hhs (in % )
10
20
30
40
50
60
70
Figure 1: Purpose of Interaction
National Rural Employment Guarantee Scheme (NREGS)
111
As the NREG Act stipulates grant of unemployment allowance to those who have not been called to work within 14 days of demand for work, 5 per cent of the households on an average interacted with the department asking for payment of unemployment allowance. This demand for unemployment allowance was relatively high in Tamil Nadu, West Bengal and Northeastern states of Meghalaya and Nagaland, as compared to the rest of the States. For purposes like working as wage labour under NREGS or to collect their wages, beneficiaries could be expected to interact frequently with the concerned government functionary or panchayat representative. However, the study found that BPL households made repeated visits to get registered under the NREG Scheme. Even after registration and grant of application BPL households made repeated visits to get the job card issued, which is a prerequisite to work under NREGS.
Purpose of Repeat Visit For getting selected as beneficiary Issuance of job card Wage payment Demand for unemployment allowance
AllIndia (n = 3039) 56 24 17 6
States where more than two-thirds of the BPL households had to interact three times or more with the concerned government staff were Andhra Pradesh, Chhattisgarh, Gujarat, Haryana, J&K, Rajasthan, Orissa and Kerala.

For around 40 percent of the rural BPL households, who interacted for one purpose or the other related to the NREGS during the last one year, the major difficulty faced was the procedural delays caused by concerned officials or panchayat representative in registering households under the scheme. Other major reasons for delays were in issuing the job card or in payment of wages.
Interference of Middlemen 13% Absence of department staff 10% Corrupt Staff 37%
Procedural Delays 40%

Figure 2: Difficulty Factors
112
Almost half of the BPL households felt that either the staffs are corrupt or the functionaries remain unavailable to issue job card, make wage payment or give information about when and where next work would be carried out. States where more than half of the BPL households interacting under the NREGS found the staff to be either corrupt or unavailable were Bihar, Chhattisgarh, Gujarat, Jharkhand, Haryana, Madhya Pradesh, Maharashtra, Orissa and Rajasthan. Most of these fall into the category of poor states, where the impact of the program should indeed be more. 13 per cent of households also felt that the interference of middlemen was a hurdle in availing services of the department. Middlemen are intermediaries, who bring citizens cases to the attention of department officials and charge a price for doing the same. Citizen pay bribes very often for benefits for which they already qualify, and the middleman passes on a portion of the bribe amount to officials. Thus middlemen have become conduit for bribe thus institutionalising the same.
6.5 PERCEPTION ABOUT NREGS

Around 47 per cent of the rural BPL households who have interacted under the NREG Scheme over the past year feel that corruption exists in the Scheme. Although initiatives were taken to curb corruption and make service delivery more transparent, benefits of these initiatives are yet to be seen substantially. States where more than half of the BPL households agreed with the same were Assam, Bihar, Haryana, Jharkhand, Karnataka, Maharashtra, Orissa and Uttar Pradesh. On whether corruption had increased or decreased during the past year, more than one-third of the BPL households said that it had increased, while 46 per cent felt that corruption had remained more or less unchanged.
46 50 40 30 20 10 0 Households Increased Same Decreased 31 22
Figure 3: Perception about level of corruption in NREGS (%)

More than half of the rural BPL households felt that initiatives taken by NREGS were not good enough to eliminate corruption. Only 13 per cent of households believed that measures taken to check corruption had been effective. In states like Uttarakhand, West Bengal and Madhya Pradesh, a very high percentage of BPL households, totalling 89 per cent, 86 per cent and 83 per cent, respectively, expressed that the measures taken under the NREGS scheme had failed to check corruption.

113
Measures Taken to Check against corruption Make Information Easily Available Improve Grievance Redressal
All India (n = 5433) 13 22 19
The department however, has taken steps to bring in transparency in its functioning and minimize corruption. For example, the Ministry of Rural Development, GoI, which is the nodal Ministry for the NREGS, has decided that maintenance of muster rolls at worksites by implementing agency would be periodically verified. Detailed guidelines for the same had also been issued to State Governments in October 2006. However, despite the special importance attached to the muster roll verification campaign, appreciable progress has not been made. Wherever muster roll verification has been undertaken and discrepancies have been noticed, there are very few instances where action against erring officials has been taken. Such laxity not only allows continuation of irregularities in the maintenance of muster rolls but also fails to have any deterrent impact on the defaulters.
A unique system has been introduced in a village in Jalaun, Uttar Pradesh, to weed out corruption from the NREGS. The Jalaun District Magistrate has issued NREGS chequebooks to labourers. The chequebook is called Shramik coupon book with 50 cheques. Each cheque has a denomination of Rs. 100 printed on it, as well as on the counterfoil. Now, a labourer hands over a cheque to his Pradhan after receiving Rs. 100 at the end of a days work in the village. So, if a Pradhan claims that he has paid Rs. 2,000 to a labourer, he must submit 20 cheques from the labourers chequebook to the district administration. This step will help end the fake entries usually made by Pradhans in muster rolls and enable workers to get their rightful wages.
To curb corruption and change peoples perception about NREGS, strictly punishing corrupt officials, increasing transparency in service delivery and prompt disbursal of information, is important. However, during the last one year, close to half the rural BPL households felt that information was not easily available about NREG Scheme. In states like Uttar Pradesh and Madhya Pradesh, more than 80 per cent of BPL households felt that information was not easily available about the when, where, what of works that were to be undertaken and when and how wages would be paid. Though the NREG Act has imposed an obligation on the State Government to make rules to determine appropriate grievance redressal mechanism and lay down procedure for disposal of complaints, 8 out of 10 rural BPL households said that grievance redressal situation under the NREG Scheme had either not improved in the last one year or had deteriorated. In order to empower the applicants to work, the Act had prescribed a definite methodology for disposal of complaints and said that the Program Officer would deal promptly with complaints that may arise in connection with the implementation of the scheme within the respective block. However, in states like Jharkhand, 62 per cent of households opined that grievance redressal had deteriorated in the past year.
114

Although the unique feature of the scheme is that any able bodied person who wants work shall be provided the same, BPL households had to use a source as a contact or pay bribe to avail work. 14 percent of the rural BPL households in all, either paid bribe or used a contact to avail the service. Many a time, households turn to someone they know at an influential position in a government department and use him/her as a contact to avail services, which they are unable to get without such help. If the contact intercedes on behalf of the household, the work usually gets done. Sometimes, work even gets done quicker than it would have normally taken, due to such a contact. Four percent of the BPL households could not avail this important flagship programme of the Government towards poverty alleviation, because they could not afford to pay bribe or have a contact to influence.
Did not take service because asked for Bribe Used a Contact Paid Bribe 0 1 2 3 4 5 6 7
4 7 7
BPL Hhs (in %)

Figure 4: Gateway of Services Bribe or Contact?

The present study focuses only on bribes paid by BPL households, not on corrupt practices prevalent in NREGS operations at other levels like fake job cards, fudged muster rolls etc. States where higher percentage of BPL households paid bribe in the last one year were Assam, Arunachal Pradesh, Bihar, Jharkhand, Karnataka, Madhya Pradesh, Maharashtra and Rajasthan. Half of the rural BPL households, who paid bribe, paid it to get registered for work under the NREGS. This is the first step in the process, and all beneficiaries have to go through this application process before obtaining a job-card. Although NREG Act mandates prompt and fair payment of wages at the statutory wage rate for each day of work and disbursement of daily wages in a prescribed manner, over 19 per cent of households said they had to pay bribe in order to ensure wage payment in time.

Getting a Job Card.not without a fee
115
When you have a family of six members and no source of steady income life can be quite miserablerecalls Kishore and further adds, My wife and I have been working as daily wage earners in a small village of Assam. Work as a daily wage labourer is uncertain and many times one can remain jobless for months together. So when I heard of the National Rural Employment Guarantee Scheme (NREGS), I was hopeful of having a regular income to support my family.... Kishore approached the Sarpanch of the village to get registered under the scheme. As required he submitted his application and waited for some response. But days turned into weeks and he did not receive his job card. He discussed his problem with the village people and discovered that only people who were close to the Sarpanch were able to secure jobs under the scheme. Hearing this, Kishore knew that his application had not been considered at all and so expecting a job offer was useless. He was completely disheartened and he shared his disappointment with his wife. Although she was also taken aback, she still encouraged him to continue to try to convince the Sarpanch. So Kishore once again went and met the Sarpanch. He described his problems and pleaded the Sarpanch to consider his application favourably. Finally, the Sarpanch agreed but not without presenting a few conditions that Kishore had to fulfil. Kishore recalls regretfully, I had to first serve the Sarpanch liquor and chicken. And as if that was not enough he instructed me to work at his residence construction site without paying a single penny!
60 50 40 30 20 10 0 For ge tting se le cte d Issuance of job card as a bene ficiary Wage payme nt Figure 5: Reasons for Paying Bribe (%) 50 27 23
HHs Paying Bribe 6.9 ROUTE OF BRIBE PAYMENT
Every three out of four rural BPL households, who paid bribe, paid it either to the concerned government employee or to the Panchayat representative. In states like Haryana, Jammu & Kashmir, Kerala, Orissa, Punjab, and in Northeastern states like Manipur, Mizoram and Nagaland, BPL households who paid bribe, paid it directly to concerned government staff.
Route of Bribe Payment NREGS officials/staff Panchayat Representative Agent/Middlemen
All India (n = 409) 55 24 22
116
Local representatives were paid bribe by 24 per cent of the BPL households who availed NREGS. In states like Arunachal Pradesh, Madhya Pradesh, Maharashtra and Rajasthan, the panchayat representatives were relatively more active as far as taking bribe is concerned.
6.10 ESTIMATION
OF
BRIBE AMOUNT
Out of the total BPL households in the country it is estimated that around one million BPL households paid bribe to avail NREGS in the last one year. The total amount of bribe paid by BPL households to avail NREGS during the past year is estimated to be around Rs. 71.5 million. Various reasons for which bribe was paid show that some people paid as low as Rs. 5 for getting selected as a beneficiary and issuance of a job card, whereas some others paid as high as Rs. 300 for the same reasons.
Extent of Bribe Paid (Rs.)
Bribe Paid for Each Purpose Getting selected as beneficiary Issuance of job card Wage payment
Range 5-300 5-300 10-300
Average 76 72 62
In states like Bihar and Karnataka, many a time people from BPL households ended up paying bribes unwittingly, because when they came to collect wages, officials deducted a certain amount from the wage to be paid as bribe, and only then made the payment.

Relative position of states on the basis of performance based on rural BPL households perception and experience about corruption in NREG Scheme in the states is summed up in the Table below. The positioning of States is in relative context. A State with moderate level of corruption is thus only better than other States and in no way it is corruption free, and in no way does it reflects corruption at other levels in the system. Households perception on corruption was essentially dependent on the extent and effectiveness of anti-corruption measures initiated by the department in respective states. In states like Assam, Karnataka, Madhya Pradesh and Orissa, the extent of corruption is Alarming. In most of the states with High and above extent of corruption, the average days of work provided to a household under NREGS is less than the national average. Lesser number of days of work available to BPL households in these states could be a reason for their perception about high rate of corruption in NREGS. Apart from Assam, MP and Orissa, Karnataka is one of the States, which falls in Alarming category. A study done by Indian Institute of Management, Bangalore, has shown that panchayats in the state are not being encouraged to be in charge of the scheme and selection of work is being left in the hands of either local elites or local bureaucracy with no role for the Gram Sabha. Another study, conducted by Delhi-based Centre for Environment and Food security (CEFS) in 2007 in Orissas six poorest districts, revealed that out of the Rs. 7330 million spent under
117
NREGA in 2006-07, more than Rs. 5000 million had been siphoned off and misappropriated by government officials. Orissa is another state where BPL households reported the level of corruption to be Alarming.
State Group Large States
ALARMING Assam Karnataka Madhya Pradesh, Orissa
VERY HIGH Bihar, Kerala Maharashtra
HIGH Gujarat Jharkhand Rajasthan Uttar Pradesh
MODERATE Andhra Pradesh Chhattisgarh Haryana, Himachal Pradesh Jammu & Kashmir Punjab Tamil Nadu Uttarakhand West Bengal Mizoram Tripura
NE States/UTs
Nagaland
Sikkim
Arunachal Pradesh Manipur Meghalaya
However, various anti-corruption measures have been taken up by those states where households reported level of corruption was Moderate. Social audit has been conducted in Tamil Nadu and the state government has also initiated a system of muster roll maintenance, whereby each labourer has to enter his/her signature or thumbprint in the roll every day by way of marking attendance. In Andhra Pradesh, another State in Moderate category, wage payments under NREGS are made through post offices. A system of institutionalised social audits, involving routine verification of NREGA records through participatory processes, has also been put in place extensively in Andhra Pradesh. Himachal Pradesh, yet another state where households reported moderate level of corruption, has taken steps to maintain transparency and curb corruption in NREGS. The State has made muster rolls and other NREGA records available for public scrutiny at the gram panchayat office, often in computerised form.

Complaints of BPL households usually pertain to difficulty in getting registered under NREGS, non-receipt of job cards, problem in getting work allocated, delay in getting wage payments and unemployment allowance. It is pertinent to mention that almost none of the States (barring a few villages in Orissa and Madhya Pradesh) has reported distribution of unemployment allowance, although households in majority of the villages/districts where the scheme is implemented have not got 100 days of work, as mandated in the NREG Act. The NREG Act stipulates grant of unemployment allowance to those who have not been called to work within 14 days of demand for work.
118
Non-receipt of job cards is another problem, for which households interact with the service providers of NREGS. Many a time, job cards are not provided to beneficiaries and are kept either with the Sarpanch (like in some places in Tripura and West Bengal) or with the programme officer for NREGS. This in-effect also means that Sarpanch and officials are free to make whatever entries in the job cards, since these cards are always at their disposal and released at their behest. Although there have been complaints from households regarding implementation of NREGS, the officials of the department said that measures have been taken to address these complaints and check corruption in NREGS. For example, an official in Maharashtra said that in order to address grievances more efficiently, a grievance redressal within 15 days rule has been made. Officials in the state also said that phone numbers were displayed on notice boards to help people register complaints easily and promptly. To combat corruption in the NREG Scheme concerned officials have been instructed to maintain proper entries in registers to ensure payments to households under NREGS, information on activities to be carried out is given and spot investigations are carried out to help take immediate action against corruption. Service providers also informed that measures are being taken to open savings accounts of NREGS beneficiary households in local banks or post offices so that payment of wages is made, with effect from April 2008. The department is also looking at ensuring planned and coordinated investments in rural areas, to help generate sustainable income as well as employment of rural households. It has recently been decided that a Task Force will be constituted to examine modalities of convergence of various social sector programs with the NREG Act. Most of the states reported having a monitoring mechanism in place, which enables periodical qualitative monitoring. Visits of National Level Monitors to districts, was also reported by service providers. Very recently, the department has also operationalized a web-based MIS (www.nrega.nic.in) in order to place all data in public domain, pertaining to workers entitlements: Registration, Job Cards, Muster Rolls, employment demanded and provided. The website also provides data on sanctioned shelf of works, work estimates, works in progress, funds available/spent, amount paid as wages, materials and administrative expenses. But, it will be some time before the benefits of this can be realized by BPL households.
NREGA Muster Rolls on Website (www.nrega.nic.in). NREGA MIS (Management Information System) is an MIS with a difference. Carrying forward the commitment to transparency and accountability, the NREGA MIS permits citizens to access the Muster Rolls (documents that exhibit the attendance of workers and payment of wages made to them) on the NREGA website with a simple click. More than 12 lakhs projects are in progress in various States providing 8551 lakhs person-days of employment. On the website one needs to navigate through State, District, Block, Gram Panchayat hyperlinks to get down to the last worker who has attended a worksite and received wages for work done. Muster Rolls are available on the website for many States and under process for others. (Source: NREGS 2 Years Report, Ministry of Rural Development, GoI)
119
Despite these various efforts, local project managers admitted that there is room for further improvement. Such initiatives need to be intensified and proper monitoring and management by higher authorities is necessitated. Social audit needs to be intensified as well as conducted at all work sites/concerned villages, regularly. Service providers opined that there is an urgent need for the public and beneficiaries to be informed about the entitlements under NREG Scheme like life insurance, health insurance, etc. There is also a need to take immediate action against corrupt officers and punish them.
6.13 SUGGESTIONS TO IMPROVE NREGS SERVICES

NREGA guarantees livelihood security to rural households and is an important service for the BPL population as per its design. It is, therefore, essential to eliminate corruption in the service and enable BPL households to avail it as well as ensure that no one is deprived from availing the scheme.
I. Monitoring and Management

Ensure timely issuance of job cards as well as wage payments and unemployment allowances. Ensure that job cards are kept with the workers and entries are updated at least once a year at each project site as well as tallied with muster rolls. Social Audits should take place at least once a year at each project site and involve civil society groups. Muster Rolls should be properly verified by State Governments as well as through Random sample verification by external agencies. Local vigilance/monitoring committees should be set up. Workers should be helped with the registration process (filling up of form etc.).
II. Creating Awareness Among BPL Households

Since the scheme has been in operation for about two years, beneficiaries should be sensitized about the entitlements applicable to them under the scheme. Leaflets and brochures in simple local language with more Figureics, explaining features of the scheme, should be distributed. Use of local vernacular newspapers, radio, TV, films & local cultural forms should be promoted, to help raise awareness about the scheme and its various features. Workers should be made aware that there is no need to look for a contact in order to get access to the scheme.
III. Complaint Redressal

Anyone should be able to get it as a right, without taking a favour from anyone. Help desk/ Helpline should be put in place to address complaints of households, as well as to give information on project sites.
IV. Local Panchayat

Panchayat should be encouraged and sensitised to actively participate wherever it is missing. Panchayat should be encouraged to participate in identifying and selecting work under the scheme.
7. Land Records & Registration Service

HIGHLIGHTS
Of the total BPL households in the country, it is estimated that nearly 18 per cent households paid bribe to avail land related services. The total amount of bribe paid by BPL households to the department for availing land related services during the past year is estimated to be around Rs. 1,234 million. A little less than one-third (31 per cent) of the BPL households reportedly paid bribe and one-tenth households claimed exerting influence to avail land related services. Among those who paid bribe, nearly one-fourth (22 per cent) claimed to have paid it for obtaining land records. A sizable proportion of households also paid bribe for availing services not directly related to land; about 16 per cent of the households paid bribe to get income certificate and another 14 per cent paid it for obtaining caste certificate. More than half of the BPL households visited three times or more to avail the land related services. Nearly one-fourth households visited the concerned department three times or more for obtaining land record. Of those who paid bribe to avail the land related services as high as 82 per cent of them paid bribe directly to the department official/staff. About 69 per cent of the BPL households, who visited the department for land services, held the opinion that corruption exists in the concerned department. While 45 per cent of them believed that corruption has increased over the year about 43 per cent felt that the level of corruption has remained same in the department dealing with land related services. Benefits of computerisation have not percolated down to BPL households. About one-tenth BPL households were aware about some initiatives taken by states for curbing corruption. Nearly 12 per cent households acknowledged that grievance redressal has been improved in the department dealing with land related matters.
7.1 INTRODUCTION
Land records form the basis for assignment and settlement of land titles. As a part of administration, land records are maintained at the village, tehsil and district levels. Record of Rights (ROR) serves
Land Records & Registration Service
121
as the legal title to the land for the cultivator. Certified records are needed to obtain credit and to transact (sale/purchase/mortgage) in land more quickly, safely and cheaply. At the State level, the work relating to Land Administration is handled by the Revenue Department. The Department of Registration looks after the registration of the sale/purchase land. At the taluk or tehsil level the officer in charge of maintenance of land record is called the Tehsildar in most of the States. At the circle level the functionary in charge is called Revenue Inspector, Circle Inspector or Kanungo, who usually supervises the work of Village Accountants (VA). Village Accountant, who is in charge of a single village or a group of villages, forms the base of the land administration. The villagers usually approach the Village Accountant/ Revenue Inspector for obtaining a copy of land record and to undertake a field visit to speed up the process of mutation. The public approaches the circle/tehsil level office for obtaining land records (ROR), file petitions for partition of land and file mutation requests. Owners visit office of revenue department for the purpose of paying land revenue. Certificates such as Caste Certificate, Income Certificate, Residential Certificate, Birth and Death Certificate and Legal Heir certificate are issued by the Revenue Officials on request by citizens. For the registration of land, people approach the Sub-registrar office. People from all sections, including BPL households, visit the revenue and registration department to avail the land related services.
7.2 INTERACTION WITH
THE
LAND RELATED SERVICE
Of the BPL households surveyed, 18 per cent visited the department for Land related services during the last one-year. A high proportion of households in States like Kerala (61 per cent) and Karnataka (51 per cent) reported visiting the revenue and registration department.
7.3 PURPOSE
OF INTERACTION
The BPL households visited the revenue and registration department for one or other purpose. For registration of land, sub-registrar office was visited while for other land related services revenue department was visited.
Purpose of Interaction Obtaining land records To pay land revenue To obtain income certificate Sale/purchase of land To obtain caste certificate Mutation Agricultural land on lease from Panchayat Purchase stamp paper Land survey
All India (n = 4075) 22 14 14 12 10 9 9 6 5
122
Highest proportion (22 per cent) of BPL households visited the revenue department for obtaining land record, which is used for obtaining bank loans. A copy of ROR is issued for this purpose. To obtain farm loans, BPL households having land need to furnish the land records to the bank or cooperative as the case may be. About 9 per cent households visited the department for mutation. It may be noted here that if a piece of land goes through a change in ownership through sale or inheritance then one has to file for mutation for conferring the right of ownership. About 12 per cent households visited the registration department for sale or purchase of land in the last oneyear. A sizeable proportion of BPL households visited the tehsil/ taluk office for some other purposes. While 14 per cent of them made a visit to obtain income certificate, one-tenth visited the office to get caste certificate. These are essential documents for getting benefits under various targeted schemes aimed at BPL households.
Table 2: Visiting Three Times or More for Same Purpose
Purpose of repeat visits Obtaining land records To pay land revenue To obtain income certificate Sale/purchase of land To obtain caste certificate Mutation Agricultural land on lease from Panchayat Purchasing stamp paper Land survey
All India (n = 2069) 23 17 12 13 8 10 9 6 5
Regarding the frequency of visit, it was found that more than half of the BPL households visited three times or more in the last one year. About 23 per cent of them visited the revenue department three times or more to get a certified copy of land record. Across the states 17 per cent visited three times or more for paying taxes and 12 per cent visited as many times for obtaining income certificate. The instances of repeat visits even for simple reasons could be taken as indicative of corruption.

Of the BPL households who visited the revenue and registration department, nearly 23 per cent faced no problem in getting their work done. Among the households, who faced difficulties, majority (51 per cent) of them held that corrupt department staff made it difficult for them to avail the services. For the BPL households too many procedures especially for doing mutation and land registration implied ambiguity in getting the work done and which means scope for corruption. For more than one-fourth of the BPL household procedural complexity leading to confusion and delay was another problem.
123
About 12 per cent BPL household reported staff absenteeism as a problem. Due to staff absence they had to visit the department several times to get their work done. Staff absenteeism was more in North Eastern states of Assam, Tripura, Meghalaya and Nagaland.
Difficulty Factors Corrupt Staff Procedural Absence of staff Interference of middlemen Non availability of forms
All India (n = 3226) 51 27 12 6 4
7.5 PERCEPTION ABOUT LAND RELATED SERVICE

60 40 20 0 Households Increased Same Decreased 45 43 12
Figure 1: Perception about Level of Corruption in revenue and registration department (%)
About 69 per cent of the BPL households who visited the revenue or registration department opined that corruption existed. In States, such as, Chhattisgarh, Maharastra, Uttar Pradesh and Karnataka, more than four-fifths of BPL household expressed this view. With respect to the trend of corruption, 88 per cent of the respondents also felt that the level of corruption has either increased or remained unchanged since the past one year. No significant difference was found on the upward trend of corruption in the past one year between states that have taken initiatives to computerise land records such as Karnataka (55 per cent) and Maharashtra (60 per cent) and states that are lagging in this aspect, like Kerala (57 per cent).

Different initiatives and measures have been taken by a number of states to improve the services of revenue department providing land related services and others. The success of these initiatives largely depends on the extent of awareness about these efforts among BPL households, who are generally less informed. When asked if initiatives taken by the revenue department have checked corruption, only 10 per cent of the BPL households replied in the affirmative.
124

Table 4: Measures Taken to Improve Service Delivery
Measures Taken to Check Corruption Make Information Easily Available Improve Grievance Redressal
All India (n = 4075 ) 10 12 12
Easy access to information about procedures to avail the services is a prerequisite to make the services user friendly. About 12 per cent BPL households felt that information about procedures to obtain land record is easily available. Only four BPL households have used RTI to get information in the land records and registration services. It is pertinent to mention here that under the centrally sponsored Computerisation of Land Records (CLR) scheme, a number of states have opened computer centres at the taluk/tehsil level to give computerised copy of ROR. In states like Karnataka and Gujarat, kiosks have been opened in the village, where computerised land records can be obtained by the villagers through simple procedures. Listening or attending to the problems of BPL household by the concerned staff in the department is still a matter of concern. Only 12 per cent households acknowledged that the departmental staff attended to their grievances in the last year.

Since corrupt staff makes it difficult for the BPL household to avail the services in the normal course, sizeable proportion of the households took recourse to alternative methods like paying bribe or use a contact to get their work done. While a high proportion (32 per cent) of them reportedly paid bribe, about 10 per cent managed to avail a contact to get their work attended to.
Bribe for Obtaining Land Record Dhaula Ram, a small farmer in Shai Pur village of Shimla owning 1.5 acres of land, was well aware of the high interest rates demanded by the landlords and thought of approaching the bank to obtain a loan for inputs to raise productivity. The bank officials asked him to furnish the land record document. He visited the revenue office to obtain a copy of land record. But four visits to the office for obtaining the ROR came to a naught. All the time the concerned official gave one excuse or the other for providing him the manual copy. In his fifth visit, he accidentally came across a staff of the same office, who demanded Rs. 100/ for delivering the same on the same day. Realising the urgency of the document, frustrated Shanta Ram gave the bribe amount directly to the staff. Within two hours he got the manual copy of ROR. Table 5: Gateway of Service - Bribe or Contact?
Gateway To Avail Service Paid Bribe Used Contact Did not take the service because could not pay Bribe
All India (n = 4075) 32 10 4
Four per cent of the BPL households could not avail the services since they could not afford to pay bribe in the last one year.
125

Respondents, who reported paying bribe to get their work done in the revenue and registration department, were asked about the nature of work/service for which they paid bribe. Nearly onefourth (22 per cent) of them paid bribe for obtaining land record. Under the manual system farmers seek from the Village Accountant/Talati/village officer to get a copy of the land records. VAs are not easily accessible as their duties entail travelling and many other functions. VAs and in some states revenue inspectors demand bribe for quick delivery of ROR. In states such as Karnataka and Tamil Nadu, the issuing of manual ROR has been banned and instead computerised copy of ROR is given at Tehsil level. The positive outcome of computerisation in these two states is evident from this study finding. In Karnataka 15 per cent reportedly paid bribe while in Tamilnadu 7 per cent paid bribe for obtaining land record as against 22 per cent at the national level.
3 5 6 8 14 12 15 16 22 0 5 10 15 20 25
T o purchase stamp paper For paying tax For land lease from panchayat For land survey For caste certificate For mutation Sale/purchase of land property For income certificate T o obtain land records
Figure 2: Reasons for Paying Bribe (%)
Bribe paid for delaying Land Partition In one BPL family in Panasaput village of Koraput District Shibu Murmu and Debu Murmu are two brothers. After the death of their father the ownership of the family land was in the name of elder brother. The elder one occupied most of the land forcefully and started cultivating though the other one enjoys equal rights to that land. The younger brother wanted the partition of land and for that matter, he filed a petition in the tehsil office. After five months of the petition, however, nothing happened because the elder brother managed to bribe some one in the tehsil office to cause a long delay to the partition of land. As a consequence, the case of partition of land is still pending and the younger brother is suffering a lot because of the delay.
While 15 per cent BPL households paid bribe for sale/purchase of land, about 12 per cent paid for mutation. The mutation request goes to the VA who checks for authenticity of the title on the basis of a field visit. VAs and revenue inspector demand bribe for undertaking the field visit. In some cases there was collusion between the revenue inspector and the tehsildar and the bribe money for mutation was distributed between them. Bribe giving is not limited to obtaining land records and mutation, etc. only but for some other services such as obtaining income certificate and caste certificate also. While 16 per cent of the households paid bribe to get income certificate, about 14 per cent paid for obtaining caste
126
certificate. For a BPL household, paying bribe to obtain the income certificate is a distressing situation. Sometimes there is collusion between a lower level staff and tehsildar in the revenue office for the delivery of these certificates since the poor people approach the lower level staff more and the staff demands bribe from them for quick delivery of service.
7.9 ROUTE
OF
BRIBE PAYMENT
Of those who paid bribe to get their work done in the last one year, as high as 82 per cent of them paid money directly to the department official/staff. Sometimes for mutation, land registration and for the delivery of income certificate and caste certificate etc. a nexus between the higher officials and lower level staff was found. There are instances where the BPL households paid the bribe to the latter category on behalf of the former. A sizeable proportion (17 per cent) of the BPL households paid bribe to the agent/middlemen. The incidence of paying bribe to agent/ middlemen was less in high-computerised states of Karnataka (2 per cent) and Chattisgarh (6 per cent) in comparison to states such as Uttarakhand (28 per cent) and Nagaland (28 per cent) who have not yet undertaken land record computerisation.
82
100 80 60 40 20 0
17 2
Percent Households Dept. official/staff Agent/Middlemen Local Representative
Figure 3: Route of Payment
7.10 ESTIMATION
OF
BRIBE AMOUNT
Of the total BPL households in the country, it is estimated that approximately 3.5 million households paid bribe to avail the land related services in the year 2007. The total amount of bribe paid by BPL households to avail land related services during the past year is estimated to be around Rs 1,233.8 million. In other words, on an average, a poor household had to pay Rs. 405 as bribe. The range of bribe amount varied significantly from as low as Rs 10 to as high as Rs 5,000. For sale/purchase of land and to take agricultural land on lease from Panchayat, the amount of bribe paid varied depending on the value of the land that to be sold and the quality of land on lease. This means the amount of bribe is positively correlated to the value of the sale/purchase transaction. The average amount of bribe paid also varied depending upon the nature of services. While for availing services such as obtaining income certificate and caste certificate, the average bribe amount ranged from Rs.110 to Rs.126, for availing services that involve complex procedure such as sale/purchase of land property and mutation, the average bribe amount was higher. Sometimes
127
for land registration, mutation and taking agricultural land on lease from Panchayat, the households paid bribe to more than one person for a particular service.
(Aomunt of Bribe Paid in Rs.)
Bribe Paid for Each Purpose Agricultural land on lease from Panchayat Obtaining land records Purchasing stamp paper Sale/purchase of land property Mutation Paying tax Land survey Income Certificate Caste Certificate
Range 20-5000 10-5000 15-2000 10-5000 15-4000 10-1500 30-3000 10-1000 10-1000
Average 505 404 310 847 500 260 471 126 110

The position of states on the basis of perception and experience of BPL household about corruption in availing land-related services during 2006-2007 is shown in the table below. Despite high degree of computerisation, the extent of corruption is alarmingly high in states such as Karnataka, Madhya Pradesh and Uttar Pradesh. This indicates that benefits of computerisation have not percolated down to BPL households. Corruption also exists in the computerised service delivery of land record. For example there were instances of bribe paid to the concerned staff at the taluk/ tehsil level, responsible for giving a certified computerised copy of ROR. There is still scope for corruption in mutation by the Village Accountant and revenue inspector since VA/ revenue inspector demand bribe for doing field verification as a part of the process of mutation.
Size of States Big States
ALARMING Andhra Pradesh, Karnataka Madhya Pradesh,
VERY HIGH Maharashtra Rajasthan Tamil Nadu Uttar Pradesh
HIGH Assam, Bihar Chattisgarh Gujarat, Jammu & Kashmir Uttarakhand
MODERATE Delhi, Haryana Himachal Pradesh Jharkhand Kerala Orissa Punjab, West Bengal Arunachal Pradesh Mizoram Pondicherry, Tripura
NE States & Union Territories
Goa, Nagaland
Sikkim
Chandigarh Manipur, Meghalaya
Among the smaller states the extent of corruption is alarming in Goa and Nagaland. The high level of corruption in Goa, Andhra Pradesh and Karnataka can be related to the spiralling land values.
128

Across the states, land-related conflicts /disputes are very common for which the aggrieved party seeks documents, certificates, etc. A large number of people seek land records for which they generally approach the VA or revenue inspector. A copy of land records is very much essential for sale of land, to get benefits under various developmental schemes as well as for obtaining loan from banks. Petitions are also filed for partition and demarcation of land and mutation requests are made in the revenue department. The service providers in the revenue department mentioned that sometimes people approach them for land registration and for registration of sale deed. While registration department looks after land registration, the records are updated in the revenue as well as registration department. Another problem cited by the service provider is that in a number of cases, mutation due to inheritance is not reported to the concerned department, resulting in the staff not being able to update the land records. In all, the states people also approach the Tehsil office for issuing a number of certificates such as caste certificate, income certificate, residential certificate, birth & death certificate and legal heir certificate. For these, a citizen has to apply and furnish various details to support his claims. The service providers held that in a number of cases the poor household does not furnish all the details, which creates difficulty in issuing the certificates to them. In 1988-89, Ministry of Rural Development (MoRD), Government of India, initiated a centrally sponsored scheme to computerize land records (CLR) with 100 per cent financial assistance to states for utilizing IT as a tool to build a Land Information System. Under the centrally sponsored CLR scheme, various states have taken initiatives to computerise the land records and other egovernance initiatives for ensuring transparency in land records and registration service. In Karnataka, under the Bhoomi e-Governance project of the Government, land records have been computerised in 176 talukas. The BHOOMI software enables printing of land records. The mutations to the land records database are done on the computer itself so as to ensure that data on computer remain current with time. The issue of manual land records has been banned in the State. Him Bhoomi has been undertaken by Himachal Pradesh Government under the Centrally Sponsored CLR Scheme. The software facilitates the computerisation of records in both rural and urban area and facilitates the online mutation entry. In addition, under the HimRis (Himachal Registration Information System) Project efforts has been taken to computerize the deed registration. In Gujarat e-Dhara project has been implemented by the Revenue Department to achieve complete computerization of Land Records. This user-friendly system with a local language interface benefits citizens as well as the administration. By using the BhuLekh Soft software, computerized copies of RoR are available by paying a nominal fee. In Andhra Pradesh, the Computer-aided Administration of Registration Department (CARD) is designed to eliminate the maladies affecting the conventional registration system by introducing electronic delivery of registration services. A few states like Karnataka and Tamilnadu has banned the issue of manual ROR. In states such as Rajasthan, Maharashtra, West Bengal, Chhattisgarh, Orissa, Tamilnadu, Madhya Pradesh and
129
Uttar Pradesh computerized copy of ROR is available in more than four-fifths of the tehsils/taluks. (Source-CLR status report, Department of Land Resources, Ministry of Rural Dev) These initiatives are focussed on computerisation of land records and the subsequent delivery of computerised copy of Record of Rights (ROR). However, the entry of textual data and its generation as a printout is a limited exercise being undertaken at the moment. Other administrative routines can also be computerised to make the service delivery hassle free for the poor household. The frequency of visits for availing various land related services, as revealed in this study, would be drastically reduced by streamlining the procedures through computerisation.
7.13 SUGGESTIONS TO IMPROVE LAND RECORDS & REGISTRATION SERVICES

Land being an important source of livelihood for the BPL households, concrete measures should be taken to reduce corruption in land related services. At the same time service delivery procedures should be streamlined for reduction in the scope of corruption. Based on the findings and implications of this study, a multi-pronged strategy is suggested. The first and important strategy should be on simplification of procedures and strengthening of grievance redressal. Another strategy should be introduction of new technologies and harnessing the potential of IT while the third strategy should be on sustained specific awareness about the measures taken among BPL communities and such other vulnerable sections.
1. Simplification of Procedures
Doing away with multiple agencies : Existence of multiple agencies, such as revenue department for maintenance and updating of Land Records & Registration department to register transactions relating to land compromises on the efficiency of updation of land records. There should be a single integrated agency for the preparation and updation of land records. This will reduce the waiting time of the citizen for obtaining updated land records and will make their work hassle free. Online grievance redressal: For quick grievance redressal the filing of complaints should be made online and should directly reach the superior authority. Monitoring of complaints by superior officials: Superior officials such as District Magistrate and Divisional Commissioners should periodically check the complaint register at the taluk/tehsil level and should take adequate measures to speed up the process for redressal of public grievances.
2. Introduction of New Technologies

Aerial survey technology for conducting cadastral surveys: Aerial survey technology should be used for conducting cadastral surveys and it should be translated into credible land records. All this should be put into a web-based service delivery system and people should be allowed to file online applications for corrections. Integration of CLR into web enabled device: To obtain a computerised copy of ROR the farmers still have to come to the taluk and rural talukas have frequent power failures.
130
India Corruption Study 2008 Such problems can be addressed by integrating data on land record into the web, which can be accessed by the farmer easily from anywhere. The credit providing institutions can also verify the data directly to speed up the processing of loans.
Online application for income certificate and caste certificate: A web-enabled system should be introduced, by which a common citizen can apply for these certificates and can confirm the status of application. The need to go and get this certificate should be avoided by one time certification in the case of caste certificate. Introduction of E-stamping for registration of land: The introduction of e-stamping would go a long way in ensuring transparency and would provide a reliable system of documentation. The system will eliminate the problem of stamp paper shortage as well as other malpractices in buying stamp paper.
3. Sustained Awareness Generation

Intensive awareness campaigns on the CLR schemes: Comprehensive awareness campaigns highlighting the benefits of new technologies should be organised especially in the rural areas. Field demonstration on the advantages of the technology should be displayed for better understanding of the illiterate people. In addition, departments such as Revenue and Registration, which have more dealings with the people, should be assessed once in three years by an independent audit team, consisting of professionals such as journalists, retired judges, activists, NGOs, and even retired government servants. The audit team should look into their policies and performance and suggest steps for their improvement.
8. Forest Service
HIGHLIGHTS
Around 20 per cent of the BPL households interacted for availing forest services in the last one year The total amount of bribe paid by these BPL households during the last one year is estimated at about Rs 240 million. Around 13 per cent of the BPL households, who interacted with forest related service, either paid bribe or used contact to avail the services during the last one year. Among reasons cited for paying bribes, majority reported permission for picking fuel wood and for getting saplings. Around 36 per cent of these BPL households were of the opinion that corruption exists in forest service. A little more than half (54 per cent) of them believed that the level of corruption has remained same. Majority (91 per cent) of the BPL households, which had paid bribe during the last one year, had paid directly to the concerned official/staff. Only 17 per cent of the BPL households acknowledged measures taken by government to check corruption in the forest service. About grievance redressal measures, only one-fifth of the BPL households had acknowledged one or the other measures that have been taken within the forest service in the last one-year.
8.1 INTRODUCTION
Forests are a valuable natural resource for our country. Many poor households in India, especially the original inhabitants of forests (the tribals) depend on it for their sustenance and livelihood. Forests cover around 20.6 per cent of the total countrys geographical area and 29per cent villages are dependent on the forests.1 Many a times, local people pay bribes to forest officials for the right to continue with their customary livelihood activities such as collecting and selling forest produce like timber, herbs, mahua flowers and tendu leaves. The forest administration also end up joining hands with the so called Forest Mafia comprising of timber merchants and contractors, resulting in the degradation of forests. Forest officials and staff are meant to protect the forests and prevent illegal acts like felling of trees, poaching, encroachment of forestland, grazing, illegal possession and transport of most
1
State of Forest Report -2005, Forest Survey of India, Ministry of Forest and Environment
132
types of forest produce, but these responsibilities are being compromised by a nexus of officials, contractors and politicians. However, efforts have been made by the forest officials to arrest the corruption menace. Forest Protection Committees have been formed under Joint Forest Management (JFM) schemes started in year 1988, which include representation of both the administration and the people residing in or near the demarcated forest areas. In Orissa, a scheme to reward villagers as well as departmental personnel for confiscating stolen forest products and preventing theft has been devised under JFM. The neighboring state of Chhattisgarh has become the first state to give the tribals and forest dwellers the land rights which will enable the poor households to legally use the land for farming and other purposes. Other states have adopted JFM policy to give the poor households the right to procure fuel wood and non timber forest produce (NTFP), forest land for farming and to help in forest protection.
Classification of States
Nearly all states of the country have some areas, which are classified as being under forest cover. However, the proportion varies significantly across the States. The central Indian region covering western Orissa, Jharkhand, Chattisgarh, Madhya Pradesh and eastern Maharashtra constitute the largest contiguous area under forest cover. The nature of forests and consequently the type of products obtained from them also differs between agro-climatic regions such as the Himalayan range, rainforest areas of the northeastern states and semi-arid tropics covering the Deccan plateau. For the present study, the states of the country have been categorized on the basis of the per centage of the forest cover (FC) out of the total geographical area of the respective state. (State of Forest Report, Indian Forest Survey 2005).
Table 1: Categorization of the States
States by the percentage of forest cover out of the geographical area High Forest Cover (More than 75 per cent) Mizoram, Nagaland, Arunachal Pradesh, Tripura, Manipur, Meghalaya Moderate Forest Cover (Between 75 and 25 per cent) Goa, Sikkim, Uttarakhand, Chhattisgarh, Kerala, Assam Orissa, Jharkhand, Himachal Pradesh, Madhya Pradesh, Low Forest Cover (Less than 25 per cent) Karnataka, Tamil Nadu Andhra Pradesh, Maharashtra, West Bengal, Chandigarh Delhi, Jammu & Kashmir Pondicherry, Gujarat, Bihar, Uttar Pradesh, Rajasthan, Haryana, Punjab
Source: State of Forest Report 2005 Total forest cover of the country is 20.60 per cent of the total geographical area of the country.
8.2 INTERACTION
WITH
FOREST SERVICE
A substantial number of Indias tribal people, many of whom are indigenous forest inhabitants, depend on forests for part of their livelihood and sustenance. However, unlike other public
Forest Service
133
services such as PDS, Hospital services and Electricity, the services provided by the Forest department are need-based and interaction of BPL households with the forest service is not as frequent as in the case of basic services. Of the total BPL households covered in the study across the country, only 20 per cent reported of interacting with the forest department within the last one-year. This per centage obviously depends on the extent of dependence on forest for livelihood and sustenance. In the case of states like Punjab and Haryana for example which are not under heavy forest cover, not many people are dependent on the forest resources for their sustenance. This implies limited interaction by BPL households for availing forest services. The States with high forest cover comprise mostly of the northeastern states. Although in these States the forest cover is extensive, the interaction by BPL households for availing forest services is not commensurately high. This could be due to the fact that one-third of the area in most of these States comes under reserve forests, which is excluded from any type of legal exploitation. In the northeastern states the number of forest protection committees (FPC) or village forest committees (VPC) formed under Joint Forest Management (JFM) is comparatively less and could be a reason for low interaction of BPL households with forest services. In case of states with low or moderate forest cover such as Chhattisgarh, Madhya Pradesh, Orissa and West Bengal, however, the percentage of FPCs formed is high2. Under JFM, the Forest Department and the village community enter into an agreement to jointly protect and manage forestland-adjoining villages and to share responsibilities and benefits.
8.3 PURPOSE
OF INTERACTION
Fuel wood is one such item for which both men and women visit the forests regularly. This increases their chances of interaction with the forest service. The study revealed that 75 per cent of the BPL households had interacted with the forest personnel during the last one year for seeking permission to collect fuel wood. The BPL households also frequently visited the forest department when they needed to seek permission for picking up NTFP such as tendu leaves, mahua flowers, saal seeds, lac or honey.
Purpose of visit Picking fuel Wood Collecting NTFP Getting forest land for farming Using forest land for grazing animals For getting saplings Permission for cutting trees Constructing houses
Total (n = 3303) 75 8 4 5 5 3 3
Source: India Stat-State-wise Status of Joint Forest Management (JFM) (As on March 1, 2002)
134
Besides fuel wood and NTFP, the BPL households also availed the forest services such as using forest land for constructing houses, for farming on the forest land, for grazing animals and cutting or selling the trees. However the frequency of visit for availing such services was comparatively less across the country.

The BPL households interacting with forest department for availing services during the last oneyear informed that they had to face difficulties due to procedural delays. These delays in making inquiries, seeking permission such as for cutting trees or for using the land for farming, affect the efficient service delivery. They added that either the officials responsible were not present in their respective offices or the requisite forms needed for specific works were not available, causing unwanted delays. More than half of the BPL households said that the staff members in the forest department were corrupt. Even the interference of the middlemen delayed their work or compelled them to use unfair means.
Difficulty Factor Total Corrupt Staff Procedural Absence of Staff Interference of Middlemen 53 28 11 5
State Category by Forest Cover High 44 19 27 9 Moderate 42 39 10 6 Low 63 24 6 4
8.5 PERCEPTION
ABOUT
FOREST DEPARTMENT
A little more than one-third (36 per cent) of the BPL households were of the opinion that corruption exists in the forest department. This per centage was high in case of Nagaland, Jammu & Kashmir, Madhya Pradesh, and Assam.
57 60 40 20 0 Increased Same Came Down

Figure 1: Perception about Level of Corruption in Forest Service (%)
18
24
When asked whether the level of corruption had increased or had remained about the same during the last one year, more than half of them opined that it had remained same while 18 per cent of them observed that the level had increased.
Forest Service
135

A majority of BPL households either felt that during the last one year, forest department had not taken any initiative to check corruption or said that they were unaware of any such initiatives. Only 17 per cent of BPL households felt that the forest department had taken one or the other anti-corruption measure during the last one year. Increasing transparency in service delivery and improving disbursal of information are important steps towards curbing corruption. However, during the last one year, less than a quarter of the BPL households felt that the information in the forest department was easily available.
Table 4: Measures Taken Improve Service
Measures Taken to Total (N = 3300) Check against corruption Make information easily available Improve Grievance Redressal 17 22 20
State Category by Forest Cover High 7 11 8 Moderate 24 29 27 Low 13 18 18
Regarding grievance redressal as well, only one out of five BPL households believed that the situation had improved in the last one year. In case of Madhya Pradesh, Goa, Tamil Nadu and Pondicherry none of them acknowledged any improvement in grievance redressal practice.

Table 5: Gateway of Service- Bribe or Contact?
Gateway to Avail Service Total (n = 306) Paid bribe Used contact Did not take the service as bribe was asked 9.3 3.8 1.9
State Category by Forest Cover High 10.2 4.8 2.3 Moderate 7.4 3.3 1.7 Low 10.8 4.1 2.0
About 36 per cent of BPL households amongst those interacting with the forest services perceive the department as corrupt against about 9 per cent who had actual experience of corruption in the last one year. Nearly 13 per cent BPL households reported that they had either paid bribe or had used a contact to avail the forest dependent services during the last one year.
Price Paid for Free Service Pawar Josef from one of the BPL households in Dang district of Gujarat informed that in order to sell the tree grown on his own land he had to spend money. He visited the local forest range office numerous times to get the form to be filled for the purpose. In the end he paid Rs.500 to get the form which is officially available free of cost. Thereafter the officials visited his house several times to investigate and sanction the sale of the tree. He had to again spend Rs. 3000 to 4000 to entertain the officials who visited his house. Finally after repeated visits and spending lot of money he could manage to get the final sanction to sell the tree.
136

Since the study has covered only the BPL households, the services they intend to avail from the forest department are mainly related to meeting the basic needs of the day-to-day existence such as collecting wood for fuel, NTFP, and permission for farming.
Table 6: Reasons for Paying Bribe by BPL HHs
Reasons For picking fuel wood Pick Non-Timber Forest Products (NTFP) Getting permission to construct house on forest land For using the forest land for farming For getting permission to allow animals to graze on the forest land Cutting trees For getting saplings
Total (n = 306) 54 7 7 4 8 7 14
Of the BPL households who paid bribe or used contact, 54 per cent did so to get permission for picking fuel wood from the forests. Around 14 per cent households end up paying some bribe or using some contact for procuring saplings for plantation that are available either free of cost or at subsidized rates. Seven per cent of the BPL households who interacted with forest department paid bribe to seek permission for collecting NTFP, for constructing their house or for cutting a tree.
8.9 ROUTE
OF
BRIBE PAYMENT
The study revealed that most (91 per cent) of the BPL households who had paid bribe to avail services of the forest department had directly paid to the forest officials. Nearly one-tenth of them had paid it to the middlemen. In case of States with low forest cover almost all the BPL households had paid the amount directly to the forest officials.
Route of Payment Total (N = 306) Forest official/staff Agent/Middlemen 91 10
State Category by Forest Cover High 80 20 Moderate 86 14 Low 96 5
8.10 ESTIMATION
OF
BRIBE AMOUNT
To avail the services of forest department or use the forest resources, the BPL households had to pay bribe to the forest officials and staff. Of the total BPL households it is estimated that during the last one year, 9 per cent (0.73 million) of the BPL households, who interacted had paid bribe to avail the forest service. The amount paid as bribe was estimated to be around Rs. 240.8 million. On an average, the BPL household had spent around Rs. 164 from their earnings. The amount paid for availing these services varied form Rs. 20 to Rs. 10,000.
Forest Service
137
Purpose For picking fuel wood Pick Non-Timber Forest Products (NTFP) Getting permission to construct house on forest land For using the forest land for farming For getting permission to allow animals to graze on the forest land Cutting trees For getting saplings
Extreme ends 50-1200 50-500 50-10000 50-1500 20-7000 20-5000 50-600
Average 233 205 1332 388 567 265 105
8.11 WHERE DO
THE
STATES STAND?
The table below tries to compare the States on the level of corruption against per centage of forest area (as per the Indian Forest Survey 2005), taking into account both the perception as well as actual payment of bribe investigated in the survey.
Grouping by Forest Cover Low ALARMING Tamil Nadu VERY HIGH Bihar, Jammu & Kashmir, Pondicherry, HIGH Andhra Pradesh, Rajasthan, Uttar Pradesh MODERATE Chandigarh, Gujarat, Haryana, Karnataka, Maharashtra, Punjab, West Bengal Moderate Madhya Pradesh, Orissa Assam, Goa Kerala Chhattisgarh, Himachal Pradesh, Jharkhand, Sikkim, Uttarakhand High Nagaland Manipur, Meghalaya, Arunachal Pradesh, Mizoram, Tripura
In the States like Madhya Pradesh, Orissa and Nagaland, the dependence of people on forest is very high. With high dependence, the interaction with service providers will also be high which could be the reason for high extent of corruption. In states with moderate to low forest cover, the area under reserve forest is lower than in the northeastern states. The discretionary powers of forest officials are therefore higher in allowing or dis-allowing BPL families to enter the forest for fuel wood and NTFP. In states particularly from the northeastern region, the Forest Protection Committees (FPC) under JFM has been constituted only in 10 per cent of the forest dependent villages. Absence of FPC could be reason for BPL households suffering more in the hands of forest staff at village level In case of the states like Chhattisgarh and Jharkhand, though the dependence on the forest services is comparatively high, the level of corruption is relatively low. This could be due to better citizenry and social activism traditions locally.
138

Forest department officials across the states agreed that their department receives complaints from common people related to collection of fire wood and non-timber forest produce, lack of forest guards, corruption of forest officers, encroachment as well as problems regarding clearance of forest land to make houses. Officials also said that people interacted with the Forest department to demand protection from elephants (in states of Jharkhand and Orissa), to ask for compensation for the losses that had occurred due to wild animals and discuss issues regarding construction of roads, ponds, wells and houses in forest villages. Almost all the states have formed Village Protection Committee and FPC under JFM. These committees not only provide the facility for the BPL families to collect firewood but also share in NTFP and other forestry works. This has not only helped in reducing the burden of forest protection on the forest department but all these activities become important source of income for the tribal families. In Madhya Pradesh, the BPL households were given special bonus for collecting high quality and quantity of tendu leaves. In other states such as Chhattisgarh, Orissa and Jharkhand, the BPL households are provided saplings at subsidized rates. Few states have even involved SHGs to provide other livelihood facilities.
Schemes for Communities in Forest Fringe Areas

States like Chhattisgarh and Jharkhand have started Forest Village Development Program for providing basic facilities to the BPL families located in interior areas. The forest department in Himachal Pradesh had started a forestry scheme where nearly one-lakh poor families would be assigned two hectares of plantation and the families would be paid Rs. 1500 for maintenance of the plantation. Similarly the Ministry of Environment and Forests (MoEF) has also initiated the National Aforestation Programme (NAP) to develop the forest resources with peoples participation, and a focus on improvement in livelihoods of the poor communities living in the fringes of the forest. However, in order to arrest menace of corruption more effectively, further steps need to be taken by the Forest department. The department needs to conduct more public hearings and workshops to raise awareness about the procedure of work in service delivery points and at the same time ensure that beneficiaries are made fully aware of these procedures and not cheated by department staff. Additionally, there is also a need to make efforts to further increase the concern for nature and its conservation amongst the households.
8.13 SUGGESTIONS TO IMPROVE FOREST SERVICES

Based on the findings of the study following suggested measures could help to improve the service. The number of Forest Protection Committees (FPCs) under JFM should be increased especially in case of the northeastern states. This will not only enable the BPL households to an easy access to collect fuel wood, Non-Timber Forest Products (NTFP), use forestland but also imbibe in them a feeling of ownership to protect the forests.
Forest Service
139
The existing JFM committees in the villages should be empowered and strengthened to carry out sustainable forestry activities such collection of NTFP, cutting of trees and plantation on their own. This will enable the committees to take independent decisions and will reduce the direct interface with the forest personnel. Consequently the scope of corruption will reduce. The forest department along with the JFM committees should provide identity cards to villagers. This will help the forest department officials to identify and differentiate between villagers and illegal trespassers. The forest staff, especially the forest guards, beat guards and range officers, should be sensitized and trained to deal and interact with villagers especially with women as they mainly visit the forests for fuel wood and NTFP collection. The grievance redressal cells across the states should be strengthened and should be made accessible to the BPL families.
9. Housing Service
HIGHLIGHTS
Of the BPL households surveyed about 14 per cent interacted with the housing service in the last one-year. Around 70 per cent of those who interacted made repeated visits for allotment of a house/ housing site. About 78 per cent reported facing some difficulty. One out of two felt that the corrupt staff in the department and their corrupt practices are the main causes for difficulties. Seventy per cent of the BPL households who interacted with the department in the last oneyear perceived that corruption exists in the service and about 45 per cent were of the opinion that in the last one year corruption had increased. Only 10 per cent of the BPL household interacting with the Housing service felt that the department had taken initiatives towards reducing corruption. As high as two out of five BPL households interacting with the housing service either paid bribe or used a contact to avail its services. Sixty per cent of the BPL household paid bribe for allotment of a plot or constructed house and rural BPL households paid bribe more than the urban. About 63 per cent of the BPL households, who reported of paying bribe to avail the service, paid it to the staff of the housing service. Incidence of paying to the staff for a service was more in the rural areas. It is estimated that around 1.5 million BPL households paid bribe. The total amount of bribe paid by BPL households during the past one year is estimated to be around Rs. 1.56 billion, or just above Rs.1000 per BPL household.
9.1 INTRODUCTION
House as a shelter is one of the basic human needs. For a normal citizen owning a house provides significant economic security. Investments in shelter not only improve and expand the available stock of housing units, but also generate employment. The Housing requirements for the below poverty line population for the year 2007-08 was estimated to be 2.1 million in the rural areas and 0.13 million in the urban areas by the Ministry of Rural Development1 (MoRD), GOI. For the first 25 years after independence, the problem of rural housing did not receive any serious attention from the Government. A Village Housing Scheme was also launched as part of the Community Development Movement in 1957, in which loans to individuals and cooperatives
1
Twenty Point Programme-2006, Progress report for April-December 2007), Ministry of Statistics and Programme Implementation, GOI.
Housing Service
141
were provided up to a maximum of Rs. 5000/- per house. However, since the 1980s, there has been a plethora of schemes announced by the Central and State governments, the intended beneficiaries being the BPL population, both rural and urban.
Table 1: Housing Schemes for Poor by State
States Andhra Pradesh Rural GRIHINI and the Special schemes like Beedi Workers, Weavers, Fishermen Housing, Dukan-O-Makan etc. Under Normal Housing Scheme INDIRAMMA -Semi Permanent Rural housing (SPR), Rural Permanent Housing (RPH) Arunachal Pradesh Assam, Bihar, Goa Gujarat, Haryana Chhattisgarh Credit cum subsidy scheme for rural housing Integrated Housing and Slum Development Programme (IHSDP) and the Basic Services to the Urban Poor (BSUP) scheme. Himachal Pradesh Jammu & Kashmir Jharkhand Karnataka Rajiv Gandhi Awas Yojna Credit cum subsidy scheme for rural housing Credit cum subsidy scheme for rural housing Ashraya, Ambedkar, Neralina Bhagya, Navagrama Yojna housing schemes under Rajiv Gandhi Rural Housing Corporation Ltd. Kerala Ashraya housing scheme of Kudumbashree for the destitute, Suraksha Housing Scheme: for EWS with at least 2 cents of land and without a habitable house, Credit cum subsidy scheme for rural housing Madhya Pradesh Maharastra Orissa Pondicherry Rajasthan Tamil Nadu Uttar Pradesh Uttarakhand Integrated Rural Housing Scheme Credit cum subsidy scheme for rural housing Rajiv Gandhi Gramin Niwara Prakalp (BPL) JNURM, IHSDP, MP Urban Services for the Poor in Bhopal, Indore, Jabalpur , Gwalior VAMBAY VAMBAY, IHSDP, National Slum Development Programme (NSDP) Perumthalaivar Kamaraj Centenary Housing Scheme Gharonda, Raj Aangan Yojna, Dwarikapuri, IHDSP JNURM JNURM IHSDP, JNURM JNURM, IHSDP VAMBAY, JNURMIHSDP, BSUP Ashiana a housing scheme for the Urban poor of Shimla town under JNURM, IHSDP IHSDP Pradhan Mantri Gramodaya Yojana, Gramin Awaas, Credit-cum-Subsidy Scheme for Rural Housing, Samagra Awaas Yojana, Innovative Steam for Rural Housing and Habitat Development Credit cum subsidy scheme for rural housing Urban INDIRAMMA Urban Permanent Housing Programme (UPH) under Normal Housing, EWS Housing, VAMBAY, Rajiv Gruha Kalpa, Jawaharlal Nehru Urban Renewal Mission (JNNURM)
Table contd...
142
Table contd...
West Bengal Delhi, Manipur, Meghalaya Mizoram, Nagaland, Sikkim, Tripura
Source: State Governments and Ministry of Rural Development Websites
JNURM, BSUP Credit cum subsidy scheme for rural housing Valmiki Ambedkar Awas Yojna VAMBAY)
The stages of service delivery under rural housing for the BPL are as follows: i) Identification of BPL families in the village, ii) Getting allocation or sanction for built houses or plots, and iii) release of sanctioned amount from the scheme. An analysis of the state-wise data from 2006-07 December on the target achieved under IAY brings out that almost half of the States have achieved more than the National Average (i.e., >79 per cent). On the basis of this data, the States have been categorized as Below Average and Above Average in terms of performance to the targets. (see Table below). An effort was made to analyze whether Target achieved has had any bearing on the findings of the study.
Table 2: IAY: State wise Physical Achievement (2006-07 Dec.)
States Nagaland Uttaranchal Sikkim Tamil Nadu Jharkhand Andhra Pradesh Madhya Pradesh Assam Mizoram Jammu & Kashmir West Bengal Haryana Uttar Pradesh Goa Himachal Pradesh Gujarat % Achieved to total target 153 130 119 117 110 102 97 96 95 86 86 85 84 84 83 79 Above Average States Kerala Maharashtra Punjab Rajasthan Karnataka Orissa Bihar Chhattisgarh Tripura Manipur Arunachal Pradesh Meghalaya Pondicherry Delhi ** Chandigarh** All India Average % Achieved to total target 75 74 74 71 70 68 60 60 60 53 46 39 23 25 0 79 Below Average
Source: IAY, State wise physical achievement 2006- 07 Dec, Ministry of Rural Development, ** EWS/LIG houses in Urban Areas Houses Constructed; (Unit: Number), Twenty Point Programme-2006, progress report for AprilDecember 2007), Ministry of Statistics and Programme Implementation.
9.2 INTERACTION
WITH
HOUSING SERVICE
Of the BPL households surveyed about 14 percent are reported to have interacted with the housing service in the last one year. The study did not find any urban-rural variation in this
Housing Service
143
regard. Despite the fact that the subsidy is sanctioned in the name of the women, or both husband and wife jointly, most of the interaction was with the male household members.
Government Initiatives in the Area of Rural Housing for the Poor Indira Awas Yojana (IAY) launched in 1980 is cash based subsidy provided to rural BPL families for constructing dwelling units. The subsidy is sanctioned either in the name of the female member of the household or jointly in the names of both spouses . The present per unit assistance is Rs. 25,000 generally and Rs. 27,500 in hilly and difficult areas. The services provided to the BPL families under this scheme are distribution of built houses, distribution of plots to BPL families who have no land and financial assistance for building house. District Rural Development Agencies (DRDAs) / Zilla Parishads decide the number of houses to be constructed Panchayat wise under IAY during a particular financial year on the basis of allocations made and targets fixed. The same is intimated to the Gram Panchayat. Thereafter, the Gram Sabha selects the beneficiaries from the list of eligible households according to IAY guidelines. Sanitary Latrine and Smokeless Chula are an integral part of the IAY houses, which are normally built on individual plots in the main habitation of the village. The IAY scheme has focused on households who already own sites but it has no module for tackling the problem of the poorest families who may not have a house site to construct a house. So far, the States are providing house sites by distributing surplus land or any other available government land. For urban poor households, Central Government has launched the Valmiki Ambedkar Awas Yojana (VAMBAY) to address the twin problem of shelter delivery for urban poor and upgradation of urban slums. Several state sponsored schemes have been taken up both for urban and rural housing. In order to construct 60 lakh houses for the rural poor by 2009 housing was also taken under the Bharat Nirman programme announced in August 15, 2005.
Around 30 per cent and more of the respondents, from Andhra Pradesh, Jharkhand, and Uttar Pradesh had interacted with the department, while it was as less as five percent in Goa and West Bengal.
9.3 PURPOSE
OF INTERACTION
Among the households who reported interacting with the housing service, about 70 per cent went with an application for allotment of a house/housing site. Around 18 percent of the respondents from below average performing states reported to have visited the service for construction of toilets.
Purpose of Interaction
State Category by Achievement All India (n = 3255) Above Average 77 10 9 4 Below Average 63 15 18 5
Allotment of plot/house Sanction/release of housing loan Construction of Toilets Transfer of ownership
70 12 13 5
Visited more than three times: On an average about 69 per cent reported to have visited the department more than three times for allotment of house/land across all the states. This may be because of the lack of any module under the IAY scheme for tackling the problem of the poorest families who did not have a site to construct a house.
144
More than 80 per cent of the BPL households from Uttar Pradesh, Uttarakhand, Jharkhand, Himachal Pradesh and Haryana among the above average states reported visiting more than three times for allotment of plot/house. Similarly among the below average states Chhattisgarh and Gujarat reported visiting the department for more than three times for the same purpose.
Purpose of repeat visits Allotment of plot/house Sanction/release of housing loan Construction of Toilets Transfer of ownership
All India (n = 1776) 69 14 13 5
A related issue of a great importance is the problem of legal ownership of house sites in rural areas. In many States, there is no formal survey and registration of house sites and the issue of ownership do become significant when collateral has to be given for taking loans for rural households. However, this survey highlights that about 5 percent of the BPL households had to visit three times or more for transfer of ownership.

From the BPL households who interacted with housing service about 78 per cent reported facing some difficulty or the other. Among them, about half felt that the corrupt staff in the department and their corrupt practices are the main causes for difficulties.
Difficulty Factors Procedural Non availability of forms Absence of staff Interference of middlemen Corrupt Staff
All India (n = 2545) 24 3 9 14 50
Procedural delays was reported by one-fourth of the respondents, is one of the means used to pressurize citizens. Further, around 9 per cent households reported absence of staff. The factors responsible for making it difficult to access housing service were more or less same both in rural and urban areas.
9.5 PERCEPTION
ABOUT
HOUSING SERVICE
About 70 per cent of the BPL households who interacted with the department in the last one-year perceived that corruption exists in the service. More than three-fourths of the households from Andhra, Haryana, J&K, Jharkhand, Nagaland, UP and Uttarakhand reported that corruption exists in the housing service.
Housing Service
100 80 60 40 20 0
Figure 1: Perception about level of Coruption in Housing (%)
145
41 14
45
Come down Same Increased
Further, about 45 per cent of BPL households who interacted with the Housing department were of the opinion that in the last one year corruption had increased. While almost equal proportion of BPL households felt that the level of corruption is same only 14 per cent felt that it has come down.

Only 10 per cent of the BPL household interacting with the Housing service felt that the department had taken initiatives towards reducing corruption.
State Category by Achievement All India (n = 3255) Check against corruption Make information easily available Improved Grievance Redressal 10 15 13 Better 5 12 10 Poor 14 18 17
Only 15 per cent of the BPL households felt that the information was being made available easily from the Housing Department while another 57 per cent felt that information on any related service delivery issue was not easily available. 90 per cent of BPL households in Uttar Pradesh 86 per cent in Jharkhand and 77 per cent in MP reported this. Only 13 per cent reported that the grievance redressal service had improved over the last one year.

Gateway
State Category by Achievement All India (n = 3255) Above Average 17.4 6.6 12.1 Below Average 21.8 17.0 12.9
Paid Bribe Used Contacts Did not take the service because asked for Bribe
11.5 11.6 12.5
Around 30 per cent BPL households interacting with the housing service either paid bribe or used a contact to avail its services. The contacts can be either within the service or local political functionaries. This is due to the fact that in housing service, the local government plays an
146
important role in selecting beneficiaries under various programs aimed at the BPL population in the first stage. The beneficiaries then have to interact with the Ministrys bureaucracy to avail of the benefits. About 17 per cent of the below average states reported using contacts for getting their work done which is almost three times than the above average states. The study did not find any urban-rural difference in this issue.
If you dont vote for me; I take back the Benefit you got through me A case was reported from the Upper Subansiri district, of Arunachal Pradesh where a BPL family secured a shelter under IAY through the influence of a local MLA. The MLA who lost the state elections later came to know through sources that the person whom he had helped in availing the benefits under IAY had not voted for him. The ex- MLA employed goons and brought down the house of the beneficiary.

The study highlighted that allotment of plot or constructed house was a service for which more than 60 per cent of the BPL household had paid bribe. About 17 per cent in Above Average and 21 per cent in Below Average States paid bribe for sanction of money itself. Further, qualitative survey brought out the fact that some BPL households pay the village Sarpanch for getting their name enlisted. Among the surveyed households, more rural BPL families reported to pay bribe than their urban counterparts.
80 70 60 50 40 30 20 10 0 Urban Rural
Figure 2: Reasons for paying bribe by location(%)
66 56 Allotment of plot/house Such on release of House loan 25 17 14 5 11 5 Transfer of ownership Construction of Toilets
Pay Bribe to get Enlisted in the Beneficiary List When I came to know that my name was listed in the beneficiaries list of IAY (Indira Awaz Yojana). I could not believe in my good fortune! recalls Shanti, an old widow from Taluka village of Nuapade district of Orissa. She had lost her husband seven years ago and since then she was some how managing her living working as an agricultural wage labor. On getting the good news of finally having a roof over her head, she immediately decided to apply for the benefit. Being illiterate, the process of acquiring was of course a big challenge for her and she decided to take help from the village Sarpanch. The Sarpanch certainly agreed to help her but only in exchange of Rs.5000. Shanti was taken aback by the huge amount demanded as service charge. When she expressed the same, the Sarpanch threatened her of removing her name from the list of identified beneficiaries She recalls ruefully, With my poor income I could not even dream of paying this huge amount as bribe. I watched helplessly as the house which I was eligible for got allotted to someone else who was willing to pay this amount.
Housing Service
147
9.9 ROUTE
OF
BRIBE PAYMENT
About three-fifths of the BPL households, who reported of paying bribe to avail the service, paid it to the staff of the housing service. Incidence of paying to the staff for a service was more in the rural areas.
Table 8: Route of Payment
Route Staff Agent/Middlemen Local representative
All India (n = 3255) 64 26 11
Urban 58 30 12
Rural 65 24 10
9.10 ESTIMATION
OF
BRIBE AMOUNT
Bribe Paid (Rs)
Bribe paid for each purpose Allotment of Plot or house Sanction/release of housing loan Construction of Toilets Transfer of ownership
Extremes 25-10000 10-4000 50-2000 40-5000
Average 1279 837 390 475
To procure a house or a plot for building a house under the government housing schemes for the BPL households, it is estimated that around 22 per cent (1.5 million) of BPL households who interacted with the housing service paid bribe. The total amount of bribe paid by BPL households during the past year is estimated to be around Rs. 1.565 billion. In other words, on an average a BPL household had to pay Rs 1047, which is approximately 5 per cent of the total benefit amount (Rs. 25,000/-). The bribe amount varied widely between Rs. 25 to Rs. 10,000. For other reasons it was as low as Rs. 10 and as high as Rs. 5000.

The Table 10 below plots the states in terms of target achieved, the corruption perception and the experience of BPL households in 2006-07. Except Karnataka, all the states which have achieved more than the national average have been categorized under Very High in terms of perception and experience in paying bribe. This may be due to the fact that the bribe is speeding up the service of allotment of constructed houses as well as land for construction to the beneficiaries and thus are above average. The existence of several State Governments schemes for housing may reflect a pro-active policy stance and, therefore, greater emphasis on achieving targets set for housing services. If the schemes are popular and continue for a long time, the incidence of corruption may also be moderate, for example, as in Andhra Pradesh. However, it is difficult to draw definitive conclusions regarding the existence of multiple schemes and the level of corruption.
148 Table 10: Relative Position of States
State Category Above Average
ALARMING Madhya Pradesh, Uttar Pradesh, Goa, Nagaland
VERY HIGH Gujarat, Jammu & Kashmir, Jharkhand
HIGH Andhra Pradesh, Assam, Uttarakhand
MODERATE Haryana, Himachal Pradesh, Mizoram, Sikkim, Tamil Nadu, West Bengal
Below Average
Karnataka
Bihar, Arunachal Pradesh,
Delhi, Kerala Rajasthan, Manipur, Pondicherry
Chandigarh, Chhattisgarh, Maharashtra, Meghalaya, Orissa, Punjab, Tripura

In most of the States, the service providers reported that the BPL household beneficiaries visit their department mainly to apply for loans, sanctioning of the loans or plot for construction and also for speeding up the process so that no more procedural delays take place. They also visit the department to complain about wrong identification of beneficiaries under the scheme, about middlemens interference, about lack of cooperation by the field officers and also about not getting complete financial benefits of the schemes. The BPL households also bring in problems related to ownership of land or delay in the construction of toilets or release of installments. To make the process transparent and pro-poor, the service providers had taken different initiative in different states. Involvement of Panchayat at every stage of project implementation, informing the beneficiaries about the scheme and holding regular meetings and camps at village level to identify beneficiaries has been undertaken. Andhra Pradesh reported supplying of cement, bricks, doors and windows and other materials at low cost to the poor, organizing online payment facilities and making advance payments to the beneficiaries. Service providers in Assam and Jharkhand reported spot verifications of sites identified by the Panchayats for building houses under IAY and inspection to locate the eligible beneficiaries. Officials in Gujarat reported grievance redressal through gram sabha, computerization of services, and providing toilets to BPL cardholders through NGOs. In Bihar, measures taken for providing better services to BPL beneficiaries include weekly meetings (Janta Adalat) to address public grievances, computerization of department to improve service delivery, identification of beneficiaries through Panchayat, allocation of money only after inspection, distribution of pass books in camps and depositing the cash benefit of Rs. 24,000/- directly to the beneficiarys savings account. The officials of housing service reported several initiatives to reduce the instances of corruption that have been taken in their State. While Kerala reported formation of vigilance committees, AP has implemented direct payment to bank accounts and forming separate committee for verification
Housing Service
149
of BPL families. Madhya Pradesh and Uttar Pradesh reported appointing nodal officers in Panchayats who register complaints of villagers and thereafter contact concerned officers for grievance redressal. Gujarat has adopted computerization, daily scanning of applications in the civic centre , Naagrik Suvidha Kendra, Jan Seva Kendra, toll free number facility, and establishment of committees to look into charges of corruption. Chandigarh collects information of the beneficiaries with photographs and family details before allotting plots, which is aimed stopping malpractices in the selection of beneficiaries. None of the officials of Himachal Pradesh, Haryana, Sikkim, Mizoram, West Bengal, Pondicherry, Karnataka, Orissa and Goa could talk about any measures taken to curb corruption in the service. Maharashtra claimed that they made the public aware about the schemes and have phone numbers of anti-corruption cell displayed on department notice board. Meghalaya, Punjab, and Rajasthan reported of raising awareness about the process and benefits and use of mass media to create awareness against corruption.
9.13 SUGGESTIONS TO IMPROVE HOUSING SERVICES
Officials from Himachal Pradesh, Haryana, Sikkim, Mizoram, WB, and Goa could not cite any new measures taken to reduce corruption in the last one year. The existing set of initiatives and efforts taken up in different states for curbing corrupt practices and improving service delivery should be adopted by all the States. A common list of all the feasible measures is given below for the concerned agencies to implement them in all the states. The funds sanction should be linked with such implementation.
List of Dos for Better Service Delivery:

Involvement of Panchayat at every stage of project implementation, Transparent selection of beneficiaries through Gram Sabha Camps at village level to identify beneficiaries and informing them about the scheme Raising awareness about the schemes and eligibility criteria through mass media. Spot verification for housing site identified by the Panchayat for building houses under IAY Inspection to find out whether the names given by the Panchayat are eligible beneficiaries Allocation of money only after inspection. Supplying of cement, bricks, doors and windows and other materials at low cost to the poor Organizing online payment facilities for depositing the cash benefit of Rs. 24,000/- directly to the beneficiarys savings account Organizing Jan Adalats to address public grievances Computerization of department to improve service delivery The Ministry of Rural Development should make it a rule that the list of eligible BPL persons/ families is publicly displayed. The beneficiary should be encouraged to come up with feedback on the quality of service delivery.
150
India Corruption Study 2008 Periodical post allotment social audit by exception is another avenue available for checking in -eligible families from gaining the benefit. Public hearing for grievance redressal can be taken up. The Ministry of Rural Development (MoRD) has initiated studies on its IAY schemes. Such studies also should focus on perception of corruption and actual experience and should also capture satisfaction levels of clients with the procedures, the implementation process, with the quality of construction, with quality of material supplied in some cases. These studies should be proactive and should help in taking corrective actions in fixing targets. The MoRD studies should be more frequent to keep the corruption issues regularly in public discourse. Nothing on the practice of BPL households selling away the subsidized flats to others, especially in urban areas thus benefiting the non-BPL category or businessmen of the subsidy.
10. Banking Services

HIGHLIGHTS
It is estimated that around 38 per cent (20.4 million) BPL households interacted with the banking services during the last one year. The total amount of bribe paid by BPL households to avail banking services during the past year is estimated as Rs. 831.7 million. Among reasons cited for paying bribe, more than half of the households (58 per cent) paid it for seeking loan. Nearly three-fourths of the BPL households, who paid bribe, paid it directly to the staff of banking services. For half of the BPL households, who accessed banking services, procedural delays such as time taken to open new account, documentation process, time taken to deposit or withdraw money, get the loan sanctioned, were some main causes of inconvenience and harassment. 42 per cent of the BPL households felt that staff in banking services indulge in corrupt practices or remain absent from their seat during office hours. One out of every four BPL households felt that corruption exists in banks and well over half the BPL households felt that corruption in bank has in fact either increased or no change was noticed during the past year. Less than one-fourth of the BPL households noticed one or the other initiative by the banking sector to curb corruption. Around 37 per cent of the BPL households interacting with banks acknowledge improvement in the grievance redressal at the bank level while for rest the situation has remained unchanged or had deteriorated in the last one year.
10.1 INTRODUCTION
Banking services have expanded greatly over the last two decades, with the entry of private banks and micro finance institutions, complementing the traditional public sector and cooperative banking system. Banking services covered in the context of the survey of BPL households undertaken as part of the India Corruption Study includes formal banking channels, network of post offices and cooperative credit societies. Of over 0.16 million post offices in the country, around 89 per cent cater to the rural population; of the 64000 plus branches of commercial banks excluding private sector and foreign banks in the country1, 46 per cent are in rural areas.1 Another 3,000 odd Cooperative Banks add to the network of banking institutions available in the country.
As on June 2007, Reserve Bank of India Report, 2006-07
152
Primarily, interaction of BPL households with banking services is to open savings account, deposit money, withdraw savings and seek loan for various purposes. Being economically poor, the interaction of BPL households with banking services was not very frequent. With the focus of government policy shifting towards schemes for employment generation and social security such as NREGS, pensions, housing schemes for poor, scholarship for students etc., where payment goes into the savings account of the beneficiaries directly, the interaction of the poor households with banking services is bound to increase. The Rangarajan Committee that submitted its recommendations recently provides suggestions for greater inclusion of BPL households in the formal banking system. In this backdrop, it would be pertinent to understand the extent of satisfaction with the banking services and to identify the nature of corrupt practices adopted by service providers during their interaction with BPL households.
10.2 INTERACTION
WITH
BANKING SERVICE
Of the 22,728 BPL households contacted, 38 per cent interacted with the banking services during the last one year. The percentage of BPL households in rural locations (37 per cent) interacting with banking services was slightly less than in urban (41per cent) areas. States where more than half of the BPL households interacted with the banking services during the last one year include Andhra Pradesh, Jharkhand, Karnataka, Kerala and Sikkim.
10.3 PURPOSE
OF INTERACTION
Among various reasons cited for interaction with the banking service, one of the main purposes of BPL households was to open a new savings account. States, where more than two-thirds of the BPL households interacted with the service for this purpose, were Chandigarh, Haryana, Himachal Pradesh, Pondicherry, Tamil Nadu, Uttarakhand, Arunachal Pradesh, Tripura and Uttar Pradesh. The other main reason for interacting with the banking services by the BPL households was to deposit or withdraw money from their savings account. In States like Chhattisgarh, Delhi, Haryana, Himachal Pradesh and Uttarakhand, more than half of the BPL households interacted with the banking services for depositing or withdrawing money. To supplement their income or meet their financial needs, around 16 per cent of the BPL households sought loan during the previous year. Another six per cent, who were currently availing the loan facility, interacted with the banking services to defer the loan repayment. Three times or more visits for the same purpose: Two out of every three BPL households, both in rural and urban area had to visit three or more times for purposes other than withdrawing or depositing money. Among those visiting to open a new savings account, more than three-fourths had to make repeated visits. Similarly, among those visiting to get a loan sanctioned, 74 per cent visited three times or more. However, it must be said that the process of getting a loan is necessarily repetitive, and three visits may be the usual number from the efficiency point of view. The main consideration
1
As on June 2007, Reserve Bank of India Report, 2006-07
Banking Services
153
is whether the BPL families find the procedures unduly difficult, or that they have to give bribes to secure a loan.
BPL Hhs Visitng 3 Times or more for same purpose
5 Get Pension Seek loan Open a new account 0 10 20 30 7 5 6 12 16 28
BPL Hhs Interacting
36 38 40 50 50
Figure 1: Purpose of Interaction (in %)
10.4 DIFFICULTIES FACED
IN
DURING INTERACTION
Every third BPL household interacting with banking services faced one or the other difficulty. Of them, around half reported procedural reasons responsible for the delay. Though several initiatives like computerization or extension of working hours aims at more efficient service delivery in banking service have been taken, the survey indicates that the benefits have not yet reached the rural areas to any significant extent. The high level of displeasure of BPL households with banking service delivery could also be attributed to low educational status of family members, and thereby more dependence on the staff for assistance. Another 41 per cent of these BPL households felt that either staff working in banking service was corrupt or remained unavailable during visits. In states like Assam, Bihar, Jharkhand, Haryana, Madhya Pradesh and Nagaland, half or nearly half of the BPL households felt so. Irrespective of the location, rural or urban, BPL households faced a similar kind of treatment/ inconvenience in availing the Banking services.
Interference of Middlemen 4% Absence of Staff 13%
Non-availability of forms 6%
Corrupt Staff 28%

Figure 2: Difficulty Factor (in %)
Procedural 49%
154

Banking Service at your Door Stepbut at an Unofficial Fee
Bribing the bank officer had become my last resort to fight for the survival of my familyone more year of no crops was simply unimaginable recalls Rajbeer, a farmer living in a village named Ghutia in Dung district of Gujarat. He and his family of four children and elderly parents depend on agriculture. A small piece of land of low fertility and so year after year they have suffered poor harvests, making them a family of below the poverty line. They are also caught in the vicious cycle of debt trap from local moneylender. So Rajbeer decided to apply for loan from local cooperative bank. The family anticipated that this credit would help them to purchase fertilizers, pesticides etc. to make their land productive. The crop was expected to provide food to the family for the year. Rajbeer with his semiliterate skills painstakingly applied for the loan. The family waited eagerly for a response from the bank. After few days of wait, Rajbeer decided to visit the bank but his repeated visits to know the status of his application was not entertained by bank official. During one such hopeless visit a bank official hinted him, Your work can be done if only you are willing to pay Rs.200 for forwarding your application. Initially, Rajbeer was not willing to pay because of his poor financial condition. He recalls, Days turned into week of waiting and I began to feel completely helpless. The season for tilling the land was fast approaching so we decided to put together everything we had to give the bribe of Rs.200 to the officer for sanctioning our loan which we finally received
10.5 PERCEPTION ABOUT BANKING SERVICES

With significant per centage (33 per cent) of BPL households dissatisfied with the banking services, not surprisingly that one out of every four BPL households interacting with the banking services agreed that corruption exists. According to 43 per cent of the BPL households interacting with the banking services, the level of corruption had remained about the same as a year ago. But another 40 per cent opined that the corruption had come down during the last one year. Therefore, only a minority (17 per cent) of BPL households thought that corruption has increased over the past one year. In states like Assam, Bihar, Goa, J&K, Punjab, Meghalaya, Mizoram and Sikkim, a larger proportion of BPL households had to make repeated visits for seeking or enquiring about the progress on their loan application. As a consequence, their perception about corruption in banking services was also high.
43 17
40
Incre ase d
Same
Decreased
Figure 3: Perception about level of Corruption in Banking Services (%)
Banking Services
155
On grievance redressal mechanism which banks have been claiming to have adopted, around twothird either did not notice any change or felt that redressal had further deteriorated in the previous year.

Three-fourth of the BPL households had not noticed any measures taken to check corrupt practices prevailing in the banking services. Similarly, around two-thirds of the BPL households felt that basic information sought from the staff on how to open a savings account or apply/status of loan application were not easily available.

As reported earlier, around two-thirds of the BPL households had to make repeated visits for one or the other purpose. To avail the services households not only had to make repeated visits but also were forced to opt for other means like paying bribe or through a contact. Four per cent of BPL households in the country (estimated as 1.6 million), either paid bribe or used a contact to get their work done in banking services over the last one year. It is clear that there is a wide difference between perception about corruption in banking service and actual corruption faced by the BPL households. Another 3 per cent (estimated as 0.51 million) BPL households remained deprived of the services because neither they had money to pay bribe nor knew any contact, who could pursue their case.
Table 1: Gateway to Service - Bribe or Contact?
(Figures in Percentage )
Gateway to Service Paid Bribe Used Contact Did not take service because asked for Bribe
All India 4 3 3
In states like Assam, Bihar, Gujarat, Meghalaya, Madhya Pradesh, Pondicherry, Rajasthan, Sikkim, and Uttar Pradesh, the per centage of BPL households, who paid bribe or used a contact, was higher as compared to other States. The pattern was similar among rural and urban BPL households.

The overwhelming majority of BPL households paid bribes to secure a loan. A little less than one-fifth of those who paid bribe did so in the process of opening a new savings account, while one out of six BPL families paid bribes to withdraw their pensions 20 per cent in the case of rural areas. This observation is critical for future course of interaction between the BPL household and the banking services. Both central and state governments have announced subsidized loan programme or loan-waiver schemes from time to time. If corruption exists in opening bank accounts, the BPL
156
family has no choice but to pay the bribe in order to obtain benefits under the schemes. Moreover, agricultural productivity depends critically on the availability of input credit for marginal farmers who constitute a large proportion of rural BPL families. Special attention needs to be given to eliminate corruption in these basic services provided by the banking system.
Pension Defer Loan Instalment Seek Loan Withdraw Savings Open New Account 0 10 7 7
12
57
18 20 30 40 50 60
HHs Paying Bribe

Figure 4: Reasons for Paying Bribe (%)
10.9 ROUTE OF BRIBE PAYMENT

In three out of four incidences of paying bribe in banking services, it was paid to the bank staff directly. Presence of agents/middlemen in banking service was also reported; around one-fourth of the bribe was routed through middlemen by BPL households in the last one year.
Route Official/staff of banking services Agent/middlemen Local Representative
All India 73 23 4
10.10 ESTIMATION
OF
BRIBE AMOUNT
It is estimated that around 0.92 million BPL households paid bribe in the previous year to avail banking services. The total amount paid as bribe by these BPL households is estimated to be Rs. 831.7 million. The bribe amount paid by these poor households ranged between Rs. 5 (for withdrawing savings from own account) to Rs. 10,000 (for sanction of loan). However, in some states, BPL households informed that there was a fixed cut on the sanctioned loan amount. This unofficial money or cut ranges between 5-10 per cent of the loan amount.
Banking Services
Table 3: Bribe Paid by for Each Purpose
157
Purpose Open a new Savings Account Sanction Loan Withdraw money from ones own account Defer Loan Instalment Take Pension
Extremes 15-1500 7-10000 5-800 30-2500 20-3000
Average 280 1312 222 653 393
Loan (Bribe) for taking Loan In Khatoni village in Rajasthan, Ram Lodha, belonging to a BPL household approached a bank in his village to avail loan for purchasing buffalo and start dairy business. For two months or so, he had to make repeated visits for one reason or the other. Finally, after repeated pleas, his loan application for Rs. 25000 was sanctioned by the bank official but with a condition! An unofficial service charge of Rs. 5000 had to be paid. Ram Lodha had no option but to pay to fasten the process of loan. He arranged this money from one of his relatives. Fortunately, he is earning enough to pay back the loan instalment regularly as well as the one he took from his relative

Based on BPL households perception and experience about corruption in Banking Services, a composite score to understand the level of corruption in each state has been calculated. The states have been categorised in to four- Alarming, very high, high and moderate. It is pertinent to mention here that positioning of States is in a relative context.
SIZE OF STATES Big States
ALARMING Bihar, Madhya Pradesh Uttar, Pradesh
VERY HIGH Assam Jammu & Kashmir Punjab, Rajasthan
HIGH Gujarat Karnataka Maharashtra Tamil Nadu
MODERATE Andhra Pradesh Chhattisgarh Delhi, Haryana Himachal Pradesh Jharkhand Kerala, Orissa Uttarakhand West Bengal
Small States/ UTs
Meghalaya, Sikkim
Goa, Pondicherry
Arunachal Pradesh, Manipur, Mizoram
Chandigarh Nagaland, Tripura
In 18 out of 31 states/UTs, the extent of corruption was high and above. States with alarming or very high level of corruption, showed a similar pattern regarding the staff indulging in corrupt practices or their absenteeism. In these states, the proportion of BPL households making repeated visits for seeking loan was also high, The loan disbursement in the banking services is exclusively the domain of banks and cooperative societies. The study noticed that in states with alarming level of corruption, the branch-population
158
ratio is high. In other words, a bank-branch caters to a larger population and bank staffs on an average interacts with more number of households. There is also the chance that the branch handles more BPL beneficiaries under various schemes. It could be presumed that due to high bank-population ratio, the prevalence of corruption is also high.

On being enquired about extent of corrupt practices prevailing in banks, officials were mostly hesitant to admit it. In only few States, service providers reported receiving complaints regarding corruption prevailing in the service but the number of complaints, according to them was very less. Service related problems for which BPL households generally come to the service providers are Lack of information and no one to guide/assist Long queues/waiting time Procedural delays due to lack of identity documents and residence proof.
To improve the service delivery, banking services have taken some initiatives. However, the availability of these services in rural areas and the extent of usage by BPL households, in particular is very less.
As Shared by the Service Providers, the Measures taken Mainly include

Increase in number of counters in bank-branches/ post offices to serve more customers at a time Computerization at front end to fasten service delivery process Extension of working hours Toll free numbers for seeking information In urban areas, appointment of relationship executives to help customers in availing services Minimum amount to be maintained in a savings account was reduced. While some banks are promoting Zero balance accounts facility to facilitate BPL households to open savings account. In Post offices to open a new savings account, no minimum balance is required.
10.13 SUGGESTIONS TO IMPROVE BANKING SERVICES

Procedural Related
Financial Inclusion of poor households should be encouraged and strictly adhered to. Identification procedure for opening of savings account should be simplified. Need for reference should be avoided if household possesses a BPL or Voter or NREGS job card. Working hours in banks and post offices in rural areas should be extended in line with the urban areas to make it convenient for BPL households to avail the services without loosing their days work.
Banking Services
159
Simplify and bring more transparency in loan processing. Well-laid criteria for short listing of the loan applicants should be formulated to avoid any biasness on part of bank staff. Loan repayment plan should be made flexible for BPL households
Information Related
Staff to assist poor households in opening account, depositing and withdrawing money, completing documentation process for availing loans Information and application forms should be made available in local and simple language
Orientation of Service Providers

Training programmes for all levels of staff in banking services to sensitise them on how to interact with BPL population or vulnerable section of society Staff should be encouraged to give feedback and such feedbacks should be looked into for implementation. Expansion in Network of banking services to reach unbanked areas, particularly in the Northeastern region, so that BPL households have easy access to banking services.
11. Police
HIGHLIGHTS
Across the country around 10 per cent (5.6 million) BPL households interacted with the Police service during the previous year. Of them, it is estimated that around 2.5 million BPL households paid bribe to Police in one connection or other during the year. The total amount of bribe paid by the BPL households to the Police during the previous year is estimated as Rs 2148.2 million. The main reason for interaction with Police service for 51 per cent of BPL households was to file a complaint. Among the BPL households interacting with Police during the year, 73 per cent opined that Police personnel are corrupt. About 78 per cent of these BPL households hold the opinion that corruption exists in the service. Over half of the BPL households felt that it had increased during the previous year. Two out of three BPL households who interacted with the Police Service during previous year either paid bribe or used a contact. Around half of the BPL households, who paid bribe, paid for ensuring that their complaint could be registered. Nine out of ten households, who paid bribe, paid directly to the police personnel. Only 7 per cent of the BPL households think that one or other initiatives was taken towards reducing corruption. As regards grievance redressal measures, 9 out of 10 households believed that the situation in Police service had not changed in the last one year or had deteriorated even further.
11.1 INTRODUCTION
Police is a State subject and is responsible for maintaining public peace, enforcing laws, investigating crime and maintaining internal security. The most affected often in circumstances involving police services are the poor. They are often victims and are deprived of getting the needed protection and attention. Perception about the police force is shaped by the way it is portrayed by the mass media and also by attitudes, behaviour and methods used by Police personnel in interacting with the public at the police stations and outside. Police service is viewed with certain hesitation or apprehension.
Police
161
WITH
11.2 INTERACTION
POLICE SERVICE
Ten per cent of BPL households sampled interacted with the Police service during the last one year. Police being a need-based service, interaction of BPL households with it is bound to be less frequent compared to other basic services like PDS, Health and Electricity. Besides, people tend to avoid the Police unless it becomes necessary. In states like Uttar Pradesh, Maharashtra, Delhi and Chhattisgarh, BPL households interacted more often with the Police service during the last one-year. On the other hand BPL households interaction with police in the Northeastern region was less often.
11.3 PURPOSE OF INTERACTION

Interaction of BPL households with the Police service was found to be mostly in connection with filing of a complaint. On an average, over half of the BPL households across the country visited police station to register a complaint. In states like Chhattisgarh (79 per cent), Jharkhand (73 per cent) and Bihar (71 per cent), a high percentage of households visited police station over the past year to register a complaint. This reflects a high rate of crime in these states.
Character Certificate Violation of traffic law Verification for job Passport verification Remove name from witness As an accused For filing a complaint 2 4 6
7 BPL Hhs (in % )
14 16 51
Figure 1: Purpose of Interaction
Some BPL households also interacted with Police service to get their names removed as witnesses. However, visits by BPL households to police station were not limited to only registering complaints pertaining to law & order situation and criminal cases, but also for obtaining certificate of verification from police for employment. Although BPL households interaction with the Police arises only at the time of need, the survey showed that some households ended up making repeated visits to Police station because earlier inquiries and requests were dismissed or ignored by the police staff. Even for the basic reason of lodging a complaint, majority of the BPL households had to make repeated visits to police station.
162
Especially in states like Bihar, Jharkhand, Karnataka and Orissa, which have significantly lesser number of policemen per lakh population as compared to other states 1, a higher number of households visited the service three or more times for filing a complaint in the last one year.
Purpose of Repeat Visits For filing a complaint As an accused Remove name from witness Passport verification Verification for job Violation of traffic rules Character Certificate
All India (n = 983) 46 20 11 8 6 3 7

For a majority of BPL households who interacted with Police service during the last one year, a corrupt police staff was a hurdle in availing police services in the normal course. Such a perception prevails among a majority of BPL households in most States. Many of the BPL households also believed that procedural delays in registering complaints or making inquiries causes inconvenience. BPL households believe that such procedural delays are part of a deliberate strategy of the police personnel to compel citizens to pay bribe.
Absence of Staff 4%
Interference of M iddlemen 4%
Procedural 19%
Corrupt Staff 73%

Figure 2: Difficulty Factors
11.5 PERCEPTION
ABOUT
POLICE SERVICE
Around 78 per cent of BPL households who interacted with the Police service think that corruption is all pervasive in the service. Although the Police services in various states have undertaken initiatives to combat corruption and improve service delivery, benefits of these initiatives are yet to be felt by BPL households.
1
Source: National Crime Records Bureau, Ministry of Home Affairs, Government of India, 2006
Police
163
However in Himachal Pradesh, a comparatively lesser percentage of households (30 per cent) felt that corruption existed in the service. The state is in the process of implementing the Police Reform directives of the Supreme Court and has also released a Five Year Strategic Policing Plan (2007-2011), which has been formulated after extensive consultation with a cross-section of people. At the national level, more than half of the BPL households not only believe that corruption exists in the Police service but also felt that level of corruption has increased during the past year. Only 7 per cent felt that corruption in Police had declined during in the last one year.
100
54
39 7
0 Increased S ame Decreased
Figure 3: Perception about level of Corruption in Police (%)
Interestingly, in North-Eastern States, which have implemented police reforms such as Sikkim and Assam, a higher percentage of households opined that corruption had risen in the service (86 and 83 per cent, respectively), as compared to States like Delhi (33 per cent) and Uttar Pradesh (34 per cent), which had not implemented police reforms. However, in the latter two states, percentage of households feeling that there was no change in the corruption level was high (48 per cent and 62 per cent, respectively).

A majority of BPL households feel that initiatives taken by the Police service have not been successful in fighting corruption. Only 7 per cent of BPL households acknowledged that measures have been taken to check corruption in the Police service. The impact of Police reform measures which the Supreme Court directed the States to take up in 2006 will take time to percolate to the grass root level, as no difference was noticed between states reporting full compliance with the Reform process and states yet to start the compliance process. Almost equal percentage of households felt that anti-corruption initiatives had not been effective in the last one year in both categories of states.
Table 2: Measures Taken Improve Service
Measures Taken to Check corruption in Police Make Information Easily Available to Visitors Improve Grievance Redressal
All India (N = 2,357) 7 8 7
164
Increasing transparency in police service is an important step towards curbing corruption and building confidence among BPL households about Police service. However, during the last one year, a majority of BPL households (60 per cent) felt that information even about their own case and its progress was not easily available at police station. People often go to police station to know the status of the case registered with the Police. However, the BPL households are more often given a vague response like inquiry chal raha hai (enquiry is going on) and no specific information comes forth. On grievance redressal, 9 out of 10 households believed that the situation had either not changed in the last one year or had deteriorated further. This sentiment was echoed across most states. Even though states like Sikkim and Arunachal Pradesh have taken steps to implement police reforms and even had set up independent Police Complaints Authorities to look into public complaints against police officers, a high percentage of households in these states said that the grievance redressal situation had deteriorated. This could mean that people still lack courage to come up with complaints about bribe taking or harassment by police personnel.

Two out of three BPL households who interacted with the Police service during the previous year either had to give money as bribe or use a contact to get through the Police.
Did not take service because asked for Bribe Used Contact Paid Bribe 0 BPL Hhs (in % )
4 17 48
10
20
30
40
50
Figure 4: Gateway to Service - Bribe or a Contact?
48 per cent of the BPL households paid the bribe whereas 17 per cent used a contact to avail Police services in the year. Four percent of the BPL households could not avail Police service during the last one year, as they could not pay bribe, implying that their necessity of the service remained unfulfilled. The percentage of BPL households who paid bribe was higher in Police service than other services covered in the study. This could be due to two reasons, first, due to Police service being monopolistic in nature households do not have an option but to depend on them. Second, due to low socioeconomic status, BPL households hesitate to complain for fear of further harassment and in that process end up being victims of corrupt practices.
Police
165

The present study focused only on bribe paid by BPL households in the last one year and not on corrupt practices prevalent in Police service as a whole. The results presented in this study therefore reflect the incidence of corruption specifically faced by the BPL population. A high percentage of BPL households not only had to make repeated visits to a police station for registering a complaint, but also had to finally pay bribe to get the case registered. Amongst the BPL households who paid bribe, almost half of them paid to get the complaint registered. There is a surprising degree of correspondence between the reasons for accessing Police service mentioned above, and the incidence of corruption while accessing a specific service. This indicates that corruption in Police service is systemic, and any kind of interaction with it on the part of BPL families results in payment of bribe.
Violation of traffic law Verification for job Passport verification Character Certificate Remove name from witness As an accused For filing a complaint
2 6 7 8 7 22 49 0 10 20 30 40 50 60
Figure 5: Reasons for paying bribe (%)
A high percentage of households in Punjab (79 per cent), Delhi (78 per cent), Karnataka (78 per cent) and Chhattisgarh (76 per cent) paid bribe to the service, in order to get a complaint registered. Households also end up paying bribe to police personnel when they are falsely implicated in a crime as an alleged accused. Finding no way out, these poor households end up paying bribe to get out of the situation.
11.9 ROUTE OF PAYING BRIBE

Almost all the BPL households who paid bribe paid it directly to the police personnel. This shows lack of fear factor among police staff in accepting bribe directly leaving less scope for middlemen. Recent reporting on electronic media about traffic police accepting hafta from bus owners in national capital, Delhi, reflects the phenomena.
166 Table 3: Route of Payment
Route Police officials/staff Agent/Middlemen Local Representative
All India (n = 1049) 92 8 1
More than 90 per cent of households paid bribe directly to the police personnel. Police reform measures are yet to show results in states like Arunachal Pradesh, Mizoram and Meghalaya, where all BPL households paid bribe directly to the staff of the respective police station. However, role of middlemen was comparatively more in States like Chhattisgarh, Orissa and West Bengal, where about one-fourth of the BPL households paid bribe through an agent or middleman in the last one year.
Police (not) for You Always It was a nightmare for my poor family to see me in jail. I had pleaded innocence repeatedly but police was not willing to hear my story This was Rajeevs predicament, who works as a small bus agent in Tamenglong district of Manipur. He somehow manages to provide basic necessities for his three children and wife who live with him in this small town. At Rajeevs work place, fighting between agents was a very common phenomenon as opportunities for good work are very limited. On one particular day, an agent got into a heated argument with Rajeev and then attacked him. Rajeev had to fight back to defend himself. While the two were fighting someone reported the case to a local police office. When the police arrived Rajeev got arrested on the spot while the actual culprit ran away. The police lodged an FIR against him by slapping charges like breaking peace and arrested him and threatened him with dire consequences. Rajeev recalls, My family was petrified and we all begged the police officers to show mercy and set me free. For hours my family camped in front of the police station and then finally a police person secretly revealed that he could clear the charge against me if we could pay Rs 5,000/- as bribe Rajeev hardly had any savings so he was in no position to pay this huge amount as a bribe. His family begged the police officer once again to reconsider the amount. The officer then brought the amount down to Rs 2,000, which the family arranged with great difficulty by taking help of a very close friend. Only after receiving the bribe did the police officer dismiss the case.
11.10 ESTIMATION
OF
BRIBE AMOUNT
Out of the total BPL households in the country, it is estimated that around 2.5 million BPL households paid bribe to avail the service of Police during the previous year. The total amount of bribe paid by BPL households to the Police service during the past year is estimated to be around Rs 21,48.2 million. On an average a BPL household availing Police service had to pay around Rs 867 as bribe. Various reasons for which the bribe was paid show that it was as low as Rs 10 for reasons like getting character certificate or removing name as a witness to as high as Rs 60,000, for avoiding being framed as an accused.
Police
Table 4: Purpose-Wise Amount of Bribe Paid for
167
(in Rs.)
Extent of Bribe Paid Purpose For filing a complaint As an accused Remove name from witness list Character certificate Verification for Job Passport verification Violation of traffic rules Extremes 20-15000 10-60000 15-1500 20-1000 10-2000 50-1000 50-1500 Average 664 1468 454 280 392 283 424
A few BPL households in States like Sikkim, Haryana, Tamil Nadu and Uttar Pradesh also paid bribe amounts in the range of Rs 25000-50000 for getting a job in the Police force. Since BPL households reported too few such cases, they were excluded while estimating the bribe amount paid to Police service at the national level.

States are grouped as Moderate, High, Very high and Alarming on extent of corruption. The four groups have been formed on the basis of a composite score of perception and experience of BPL households with corruption in Police service in their respective states in the last one year. The positioning of States is relative and a state with moderate level of corruption is only relatively better than other States and in no way is corruption free. Moreover this position does not reflect corruption at other levels in the system. Majority of the States were rated as having high or above level of corruption. The states where level of corruption in Police service, based on the present study, is alarming or very high include Assam, Bihar, Chhattisgarh, Jharkhand, Rajasthan, Madhya Pradesh, Tamil Nadu and Uttar Pradesh. Among smaller states and UTs, corruption level in Goa, Sikkim, Arunachal Pradesh and Nagaland is alarming or very high.
(In alphabetical order)
SIZE OF STATES Large States
ALARMING Assam, Rajasthan, Uttar Pradesh
VERY HIGH Bihar, Chhattisgarh, Jharkhand, Madhya Pradesh, Tamil Nadu,
HIGH Gujarat, Jammu &Kashmir, Karnataka, Maharashtra, Orissa, West Bengal Chandigarh, Meghalaya
MODERATE Andhra Pradesh, Delhi, Haryana Himachal Pradesh, Kerala, Punjab, Uttarakhand Manipur, Mizoram Pondicherry, Tripura
Small States/UTs
Goa, Sikkim
Arunachal Pradesh Nagaland
Police reform process is in a nascent stage despite it being debated for several years and yet to show its impact on the functioning of the police force.
168

Police personnel shared that the nature of complaints concerning BPL households mainly include theft and stealing of livestock and household items, lewd comments passed on a family member, disputes related to money transactions, trespassing and encroachment of ones land or house, among others. Police staff shared that sometimes people even come with complaint on petty issues like garbage/waste being thrown in front of their house by a neighbour or collection of water from community source. Towards improving service and regular patrolling, police posts have been established at sensitive places. Police personnel opined that the media, by portraying and highlighting negative aspects more, has created such an image of Police service among common man, that people try to avoid interacting with the Police or coming forward as witnesses or sharing any information about a crime or an accident. Initiatives have been taken by some states towards improving police functioning and thereby the general law & order situation. However, it would be pertinent to gauge the extent to which the BPL population has accessed these initiatives, as they are largely unaware of such measures. Moreover, urban population is largely benefited by these measures than the rural BPL households. Aarakshi, an Intranet-based system has also been developed and implemented for Jaipur City Police, enabling on-line sharing of crime & criminal data bases, to improve communication and monitoring activities. The Software provides a facility to update and perform queries on database of FIRs, telephone directory of police officers, instructions of Police Control Room on real time basis, among others. Telephone numbers of beat constables written on the walls at some places in Jaipur (Rajasthan) for people to use it at the time of need is another initiative for making Police service available to citizens. States like Meghalaya have shown a commitment to widespread police reform and set up a fourmember Police Reform Committee in 2005. This committee had fairly broad terms of reference and traveled all around the state to examine the problems people had with police service that needed to be addressed. They consulted members of the public as well as the police before finalizing the recommendations. Arunachal Pradesh has also taken steps to improve functioning of the Police service. Officials informed that a Strategic Policing Plan for the state had been drafted, with detailed performance targets, milestones and timelines for achievement. Some officials of the service felt that the negative impression held by the public about the Police force needs to be changed and even the media should desist from portraying the force only in negative light just for the sake of sensationalism. But it is for the Police force itself to prove its bona fides in this respect. At the same time, police officials opined, timely action by police force and an honest and friendly behaviour towards the common man irrespective of the persons socio-economic status would help reduce the level of corruption and change peoples perception about the service.
Police
169
TO IMPROVE
11.13 SUGGESTIONS
POLICE SERVICE
Police is one of the services on which State governments image depends to a large extent. It therefore becomes important to bring improvement in the functioning of Police service. In order to do this, based on earlier studies on Police during the past few years, a three-pronged strategy is suggested. The first step pertains to adopting newer schemes as well as technologies to make the Police services more efficient. The second step is to do with making services of the department more transparent, improving grievance redressal and information system. The third step is to do with changing peoples negative perception of the Police service by taking news media support.
New Initiatives and Technologies

Intranet-based system should be developed for all state police departments, enabling on-line sharing of crime & criminal databases, aiding communication and monitoring activities. Promoting usage of FM and community radio for sensitizing the people. Training and refresher courses on public interaction and community related dealings need to be initiated. Helpline should be permanently instituted with easy access to vulnerable sections of local people. Not only telephones but also manning at police stations is important. Frequent training of police personnel through local agencies. A local university or institute should specifically design and conduct short-term courses on how to interact with poor and women, and on issues to do with matrimony, alcoholism, sexual abuse etc. This would also enable the police force to deal with local problems in a more effective manner.
Transparency and Grievance Redressal

Transparency in service delivery by sharing of information to urban as well as rural BPL households should be encouraged. Timely action needs to be initiated and complaints should be registered promptly. Police, on its own, at regular interval should keep the concerned person/family informed with the status of the complaint registered. Independent Police Complaints Authorities in all States should be set up, to look into public complaints against police officers and staff. There is a need to separate investigative and law & order functions of the police, and train them accordingly. Complaint books at police stations should be more seriously used. Police Week should be organized more seriously and more interactively with the BPL households. A citizens committee with shifting annual membership should be constituted at local level to go into matters of delays in legislating cases and harassment of people at the Police Station.
170
Perception about the Police Service

Police should be more helpful and the public should be able to approach them with confidence. Sensitization of police personnel for friendly behaviour towards people needs to be brought in. Police should frequently interact with community members to create confidence and better image of the Police force. An honest and friendly behaviour towards the common people needs to be inculcated, irrespective of the persons socio-economic status. Trust amongst the public should be built by ensuring prompt and impartial service. Police should review its relations with news media and should formulate a clear short term and long-term strategy to improve its media relations.
Formulation of Citizens Charters

This draft Citizens Charter for the Police should be finalized after having a detailed discussion with the concerned Service Providers, Service Seekers and the genuine NGOs representing the concerned Citizens and services. It has been divided into the following sub-Charters for the 1) 2) 3) 4) 5) Office of the DGP/IGP/DIG of Com-missioner of Police/Jt.CP/Addl.CP Office of the SSP/SP or DCP/ACP Office of the Area SHO/Inspector Traffic Police Special Branch
Office of the DGP/IGP/DIG or Commissioner of Police/Jt.CP/Addl. CP

Website : http://www........................................................... Name of Officer I/c Tel. No. Office Fax No. SMS Name of Alternate Officer Tel. No. Office Fax No. SMS Res. E-mail ID Meeting Hours Mobile Res. E-mail ID Meeting Hours Mobile
Locations of Office of the IGP/DIG or Jt.CP/Addl.CP

(Please fill in the following Chart and mention the website ID. This may please be displayed prominently out side the Offices of the DGP/IGP/CPs)
Police
Sl. Name & No Location Name & of Office Designwith land ation marks Designated Officer Tel. No. Off. Res. Fax EMail ID/ SMS Alternate Officer Tel No. Off Res Fax
171
Desig- Meeting Hours Name nated Area & Designation 8 9 10
EMail ID/ SMS
11
12
13
14
IGP/Jt.CP 1 2 DIG/Addl.CP 1
Correspondence
Any person may submit his complaint by hand and obtain its receipt. The facility of specially earmarked Drop Boxes is also available at the following places (Mention them) : 1 2 3 Any person can also have access even to the senior most officer by addressing him in writing directly. Copy of such a letter/complaint can be put in the complaint/suggestion boxes placed at every Police Station and offices of other officers.
Helpline
Police Control Room Phone No. Helpline for Women in Distress Helpline for Senior Citizens Traffic Helpline Complaint Against Auto/Taxi 100 (mention your no. ...................................)
Office of the SSP/SP or DCP/ACP

Website : http://www ........................................................... (Please fill in the following Chart and mention the website ID. This may please be displayed prominently out side the Offices of all the SSP/SP/DCP/ACPs)
172
Name of Officer I/c : Tel. No. Office Fax No. SMS Name of Alternate Officer: Tel. No. Office Fax No. SMS Locations of Police Stations/Circle Offices
Sl. Location No of Office with land marks Designated Officer Name Off Tel No. Res E-Mail ID
Res. E-mail ID : Meeting Hours:
Mobile:
Res. E-mail ID: Meeting Hours:
Mobile:
(As on date________________________)
Designated Meeting Hours Area Alternate Officer Name Off Tel No. Res Fax EMail ID
1 2
Helpline
Police Control Room Phone No. Helpline for Women in Distress Helpline for Senior Citizens Traffic Helpline Complaint Against Auto/Taxi 100 (mention your no. ...................................)
Office of the SHO/Inspector of ------------------------------------------------Area

Website : http://www ........................................................... ame of Officer I/c : Tel. No. Office Fax No. SMS Res. E-mail ID : Meeting Hours: Mobile:
Police Name of Alternate Officer: Tel. No. Office Fax No. SMS Res. E-mail ID: Meeting Hours: Mobile:
173
(Please fill the following Chart and mention the website ID. This may please be displayed prominently out side the Offices of Area SHO/Inspectors)
Duty of the Officer in Charge of the Police Station

Documents Form, if any (Self Attested) 2 Form, if any No. of Days Required 4 If not done satifactorily, pl. contact Name & Designation 5 Telephone No. Off. 6 Res. 7 Fax 8 9 Remarks
Services Offered
1 Registration of FIR Permission for functions, etc. Certification of Losses/theft Registration of Security Agencies Issue of Arms and Ammunition licenses Licenses of Cinema, Video Games, Parlour, etc Licenses of Eating Houses & Hotels Licenses of Poisons
174
Licenses of Fire Crackers Licenses of Sulpher Licenses of Swimming Pool Licenses of Amusement Activities Licenses for Newspapers & Journals Licenses for Declaration of Printing Press Grant of NOC for fresh Petroleum Stations and Storage Misc.
Rules for & Documents Required to meet Undertrials and Prisioners (As on date )
Visitors Frequency, Days & Meeting Immediate after arrest Normal Appointment through Documents Emer- Required Fax Tel No. Appligency cation (to whom) Entitled Items & Qty to be Taken
Clothes Food Money Others
A. Detainees at Police Station 1. Family Members 2.Advocates 3. Relatives & Friends B. Undertrials & Imprisoned Persons 1. Family Members 2.Advocates
Police
175
3. Relatives & Friends 4. Meeting among prisoners C. Any Other Person 1. Family Members 2.Advocates 3. Relatives & Friends 4. Meeting among prisoners
DUTIES
OF THE
OFFICE
IN
CHARGE
OF THE
POLICE STATION
To prevent & detect crime and maintain law & order within his jurisdiction, Police Stations/ Police Posts are responsible for:1. 2. 3. 4. Registration of FIR/NCR and investigation of cases, arrest of the accused, recovery of stolen property, challaning of cases and prosecution. Depositing unclaimed property under Police Act. Recording of Report on missing persons (including) and tracing them. Undertake regular patrols in their designated areas, keeping track of all important activities having bearing on law & order. Maintenance of dossiers on persons with criminal past or those suspected of being involved in unlawful activities. Verification of servants/chowkidars/tenants and registration of Security agencies. Granting permission for loud speakers, rallies, political/religious functions. Checking of banks and institutions dealing with cash transactions. Providing help to Senior Citizens and other vulnerable groups. Providing documents for filing claim in Motor Accident Claim Tribunal.
5. 6. 7. 8. 9.
10. Providing Guards for the transportation of cash, if required, as per police rules. 11. Public hearing for redress of grievances. 12. Helping rape and other victims of heinous crime. 13. Implementation of Neighbourhood Watch Scheme. 14. Assisting and involving NGOs in community oriented policing.
176
15. Organising meetings with Residents Welfare Associations/Mercantile Traders Associations to sort out their safety related problems, security and maintenance of peace in the localities wherever necessary. Organize meetings at various levels. 16. Coordination with other units like Traffic, PCR etc.
Rights Extended to the Persons Arrested, Detained in Police Custody as per National Human Rights Commission ( NHRC ) Guidelines (NHRC NHRC)
a) The power to arrest without a warrant should be exercised only after a reasonable satisfaction and after some investigation, as to the genuineness and bonafides of a complaint and a reasonable belief as to both the persons complicity as well as the need to effect arrest. Arrest in cognizable cases may be considered justified in one or the other of the following circumstances: (i) In cases of grave offence like murder, dacoity, robbery, rape etc., to prevent him from escaping or evading the process of law, destroying evidence or interfering with witnesses or warning other suspects who have not yet been arrested, and to commit further offences. Except in heinous offences, an arrest must be avoided if a police officer issues notice to the person to attend the police station and not leave the station without permission. The power to arrest must be avoided where the offences are bailable unless there is a strong apprehension of the suspect absconding. Police officers carrying out an arrest or interrogation should bear clear identification and name tags with designation. The particulars of police personnel carrying out the arrest or interrogation should be recorded contemporaneously, in a register at the police station.
b)
(ii) (iii) (iv)
ARREST
1. As a rule, use of force should be avoided while affecting arrest. However, in case of forcible resistance to arrest, minimum force to overcome such resistance may be used, and care must be taken to ensure that injuries to the person being arrested, visible or otherwise, is avoided. That the police officer carrying out the arrest shall prepare a memo of arrest against the arrestee. Such memo shall be attested by at least one witness, who may be either a member of the family of the arrestee or a respectable person of the locality from where the arrest is made. It shall also be counter signed by the arrestee and shall contain the time and date of arrest. The dignity of the person being arrested should be protected. Public display or parading of the person arrested should not be permitted at any cost. Searches of the person arrested must be done with the due respect to the dignity of the person, without force or aggression and with care for the persons right to privacy. Searches of women should only be made by other women officers with strict regard to decency. The use of handcuffs or leg chains should be avoided and if at all, it should be resorted to strictly in accordance with the law.
2.
3. 4.
5.
Police 6.
177
A person who has been arrested or detained and is being held in custody in a police station or interrogation center or other lock-up, shall be entitled to have one friend or relative or other person known to him or having interest in his welfare being informed, as soon as practicable, that he has been arrested and is being detained at the particular place, unless the attesting witness of the memo of arrest is himself such a friend or a relative of the arrestee. The time, place of arrest and venue of custody of an arrestee must be notified by the police where the next friend or relative of the arrestee lives outside the district or town through the Legal Aid Organization in the District and the police station of the area concerned telegraphically within a period of 8 to 12 hours after the arrest. The person arrested must be made aware of this right to have someone informed of his arrest or detention as soon as he is put under arrest or is detained. An entry must be made in the diary at the place of detention regarding the arrest of the person which shall also disclose the name of the next friend of the person who has been informed of the arrest and the names and particulars of the police officials in whose custody the arrestee is.
7.
8. 9.
10. As far as practicable, women police officers should be associated where the person or persons being arrested are women. The arrest of women between sunset and sunrise should be avoided. 11. The arrestee should, where he so requests, be also examined at the time of his arrest and major and minor injuries, if any present on his/her body, must be recorded at that time. The Inspection Memo must be signed both by the arrestee and the police officer effecting the arrest and its copy provided to the arrestee. 12. Where children or juveniles are to be arrested, no force or beatings should be administrated under any circumstances. For this purpose, Police officers may associate respectable citizens so that the children or juveniles are not terrorized and minimal coercion is used. 13. Where the arrest is without a warrant, the person arrested has to be immediately informed of the grounds of arrest in a language, which he or she understands. Again, for this purpose, the police, if necessary, may take the help of respectable citizens. These grounds must have already been recorded in writing in police records. The person arrested should be shown the written reasons as well and also given a copy on demand. 14 . Apart from informing the person arrested of the above rights, the police should also inform him of his right to consult and be defended by a lawyer of his choice. He should also be informed that he is entitled to free legal aid at state expense. 15. When the person arrested is brought to the police station, he should, if he makes a request in this regard, be given prompt medical assistance. He must be informed of his right. Where the police officer finds that the arrested person is in a condition where he is unable to make such request but is in need of medical help, he should promptly arrange for the same. This must also be recorded contemporaneously in a register. The female requesting for medical help should be examined only by a female registered medical practitioner. 16. Information regarding the arrest and the place of detention should be communicated by the police officer effecting the arrest without any delay to the police control room and District/ State Headquarters. There must be a monitoring mechanism working round the clock.
178
17. The information regarding the arrest and the place of custody of the arrestee shall be communicated by the officer causing the arrest to the District and Police Control Rooms within 12 hours of effecting the arrest. Further at District/Central Police Control Room it should be displayed on a day to day basis at a conspicuous place on a notice board. Every police station shall also display the details of arrestees at a conspicuous place for the knowledge of the public. 18. As soon as the person is arrested, police officer affecting the arrest shall make a mention of the existence or non-existence of any injury(s) on the person of the arrestee in the register of arrest. If injuries are found on arrestee, full description and other particulars as to the manner in which the injuries were caused should be mentioned in the register, which entry shall also be signed by the police officer and the arrestee. At the time of release of the arrestee, a certificate to the above affect under the signature of the police officer shall be issued to the arrestee. 19. If the arrestee has been remanded to police custody under the orders of the court, the arrestee should be subjected to the medical examination every 48 hours during his detention in custody by a trained Medical Officer on the panel of approved by Director, Health Services of the concerned State or Union Territory. At the time of his release from the police custody, the arrestee shall be got medically examined and a certificate shall be issued to him stating the factual position of the existence or non-existence of any injuries on his person. 20. Copies of all the documents including the memo of arrest, referred to above, should be sent to the area Magistrate for his record.
After Arrest
(i) The person under arrest must be produced before the appropriate court within 24 hours of the arrest. (ii) The person arrested should be permitted to meet his lawyer at any time during the interrogation. (iii) The interrogation should be conducted in a clearly identifiable place, which has been notified for this purpose by the Govt. The place must be accessible and the relatives or friend of the person arrested must be informed of the place of interrogation taking place. (iv) The methods of interrogation must be consistent with the recognized rights to life, dignity and liberty and right against torture and degrading treatment.
Citizens Obligations
1. 2. 3. 4. 5. To inform the local police about the persons living in the area without any regular means of livelihood and living a lavish life or persons involved in any type of nefarious activities. To inform the local police any suspicious activities, which may affect their safety and security. The particulars of the domestic help and the tenants may be sent to the local police for verification to prevent entry of criminals and anti-national elements in their houses. To observe Traffic rules, follow the lane system and cooperate with the traffic police for smooth mobility and avoiding inconvenience to others. May not touch or lift any suspicious object, but inform PCR.
Police 6. 7.
179
To adopt various home security and vehicle safety measures advised by the local police to prevent thefts and other crimes. To assist local police in all possible manner for prevention and detection of crime and to maintain law and order.
Thana & District Level Committees

To promote interaction between the Police and the public, Thana and District Level Committees should be constituted in each District and Police Station, respectively. The Thana Level Committees should be represented by the Area MLAs, whereas District Level Committees should be represented by the MPs. Monthly meetings should be held regularly with the representatives of public.
Campus Complaint Box

Mention the location of complaint boxes fixed in universities, college and other institutions 1 2 These boxes are to be opened by the concerned SHOs and complaints so received, to be registered in Daily Diary of the Police Station for taking necessary action, under intimation to complainant.
Crime Branch
The Crime Wing under the supervision of a Deputy Commissioner of Police in Metropolitan cities deals with specialised cases which comes under any of the following Cell/Unit:-
1. General Crime
a) Robbery Cell. b) Anti-Kidnapping Cell. c) Anti-Burglary Cell. d) Anti-Homicide Cell. e) Anti-Auto Theft Squad. f) Inter-State Cell g) Special Investigation Team h) Bomb Disposal Squad. i) Dog Squad j) Missing Person Squad.
2. Economic Offences Wing

a) Anti-Forgery Cell b) Criminal Breach of Trust
180
India Corruption Study 2008 c) Anti-Fraud and Cheating Cell d) Land & Building Racket Cell
Important : In order to introduce accountability in Police, a mention should be made about an effective grievance redress mechanism (including the provision of compensation on the pattern of the Central Right to Information Act-2005 to the concerned citizen, if promised services are not provided as per specified time schedule and service standard).
Traffic Police
The function of traffic police basically pertains to traffic management, regulation, enforcement of traffic rules & regulations and road safety education to all road users. The Traffic Unit functions under the supervision of Joint/Dy. Commissioner of Police (Traffic), assisted by adequate number of subordinate staff. (Please fill in the following Chart and display it prominently out side the offices of Traffic Police) (As on date.........................................)
Services Offered Documents required (Self Attested) Form, if any No. of If promised services are not delivered in-time Days Place of contTelephone Required Officer to be act /Room No No. contacted Off. Res. Fax
Notification of Taxi Stand N.O.C for No Challan Due Permission to Commercial vehicles for entry in No Entry Zones N.O.C. for speed breakers Permission for road cutting/ digging
Important : In order to introduce accountability in Traffic Police, a mention should be made about an effective grievance redress mechanism (including the provision of compensation on the pattern of the Central Right to Information Act-2005 to the concerned citizen, if promised services are not provided as per specified time schedule and standard.
Police
181
In Case of Traffic Challans

(As on date.........................................)
Services Offered Tel. No Documents required, if any (Self Attested) Cash/ Working by DD Hours If promised services are not delivered in-time Name & Designation Telephone No. Off. Res. Fax Place of contact /Room No
A. Places to make payment (Since many of the banks are having the computerized services all over India, arrangements can be made either with them, Easy Bill or similar other agencies)
B. If Challan is disputable, authority to be contacted
The Unit is M ainly Responsible for: Mainly

1. 2. 3. 4. 5. 6. Providing safe and smooth flow of traffic. Preventing road accidents. Effective enforcement of traffic rules and regulations. Inculcating a sense of discipline amongst road users and educating the general public, including school children on road safety. Ensure smooth and secure traffic movement for special occasions and VIP movements with minimal inconvenience to public. Removal of vehicles parked at Non-Parking Zones leaving the indications that the vehicle bearing the registration number ........ has been towed away to ....... (name of the place with telphone no.) ..........
The Unit is also Responsible for:

1. 2. 3. 4. 5. 6. 7. 8. Rendering assistance to public in various stressful conditions such as prompt first aid to road accident victims. Assisting and advising various agencies in co-ordinated development of infrastructure for safe and smooth flow of traffic. Protecting environment by taking appro-priate steps for prevention of noise and air pollution. Encouraging participation and involvement of public in traffic management and regulation. Arrangements for various functions in the city. Updating of Website on traffic related matters. Imparting traffic training to school-children. Promoting road safety through-mobile exhibition van, painting competitions, skit competitions, essay competitions, debates etc.
9 . Installation of traffic signals/blinkers/timers. 10. Smooth functioning of Pre-paid Taxi/TSR booths.
182
Rights/facilities available to persons violating traffic rules/regulations

a) Compounding the traffic offence at the spot and pay the prescribed compounding amount to a traffic police officer without going to court. or b) Go to court for its disposal/contesting etc.
Documents one should always carry while driving on the road

Driving License Vehicle Registration Certificate Vehicle Insurance Pollution Certificate Note - In case of non-availability of any/all such documents or attested copies thereof, the same can be sent by registered post within 15 days from the date of demand.
FACILITIES
AVAILABLE TO
GENERAL PUBLIC
Traffic Helpline Phone No. ........... (and its timings) E-mail ID and postal address for lodging any traffic related complaint/suggestion Traffic Website ......... providing traffic related information SMS No. for seeking and dissemination information regarding traffic diversions, traffic signal failures, congestion on any road, road accidents details, notice details etc. Mode-wise addresses/offices and timings where payment of compounding amount for traffic violations can be made The places where Pre-paid Taxi/TSR services are available Mention : Short Message Service (SMS) Number to know the online status of passport verifications conducted by Special Branch or Intelligence Branch with the following information : File Number, Status, Name, Dispatch Number, Dispatch date.
Police
183
Special Branch
(Please fill in the following Chart and display it prominently out side the office of the Special Br.) (As on date.........................................)
Area Services Offered Address Officer l/c Name & Designation Telephone No. Off. Res. Fax Time taken Remarks
Verification of (i) Character and antecedes (ii) Passport Registration of Pak Nationals F.R.R.O. and visa extension Any other service
Part-III Perception and Experience of Corruption: State Wise

(AMONG BPL HOUSEHOLDS)
1. Andhra Pradesh
1.1 ABOUT
THE
STATE
According to Planning Commissions estimates, 16 per cent of population or about 12.6 million people in Andhra Pradesh are Below Poverty Line (BPL) in 2004-05. The incidence of poverty is higher in urban areas (28 per cent of people are classified as BPL) as compared to rural areas (11 per cent). The monthly per capita income in rural areas is Rs 293 which is significantly below the national average of Rs 356, and is Rs 543 in urban areas, just above the national average of Rs.538. This study brings out that a little more than 3 per cent of eligible households do not have BPL cards where as a similar percentage of the ineligible households have it. But since the CMS study covered only BPL households, the percentage of ineligible households having BPL card would be much higher since most of them fall into the higher income groups.
1.2 GENERAL PERCEPTION ABOUT CORRUPTION

Andhra Pradesh has a very intense and competitive news media scenario. There are four dedicated Telegu news channels and a similar number of widely circulated Telegu newspapers in the State. The media in Andhra Pradesh extensively reports on allegations of large-scale corruption in many State projects, for example, irrigation projects under the Jal Yagnam scheme. While these may not directly affect the BPL families, such coverage moulds the perceptions of people in relation to the existence of corruption in the State. It would therefore be interesting to understand the perception of BPL families about corrupt practices in the State.
Table 1: Corruption: Hear Say or Real?
(Figures in per cent)
Variables Location Urban Rural Gender Male Female Education Illiterate Literate Less than primary Primary Secondary Graduate & Above
Hear say more
Had first hand experience
Dont know /Not sure
48 63 58 61 68 50 59 54 56 51
49 32 37 36 28 46 37 41 38 47
3 5 5 3 4 4 4 5 6 2
188
Despite extensive coverage by the news media about corruption in various public services, close to 60 per cent of BPL households covered in the survey think that corruption is only hear say. However, 37 per cent have accepted to have first hand knowledge of corruption. Relatively higher percentage of urban and educated BPL people has reported first hand knowledge or experience of corruption. This could be due to the fact that the reach of news media, especially print media, is higher among urban and educated section of the BPL population in the State. Nevertheless, three-fourths of BPL respondents think that corruption has either increased or remained same in the last one year. Little over one-fifth of BPL households think that corruption has declined. Relatively higher percentage of urban population, male and educated BPL respondents think that corruption has increased in the last one year. Interestingly, the perception of corruption among women is to the contrary. Nearly 40 per cent think that corruption has decreased, while only one-third believe that it has got worse in the last year.
Table 2: Level of Corruption
Increased
Decreased
Same as before
52 39 46 34 41 50 45 40 42 49
30 36 32 41 35 36 44 37 31 23
17 24 21 23 20 14 11 22 27 28
Over one third of BPL people hold government functionaries responsible for corruption. One out of every five BPL households believes that politicians are responsible for corruption in the State. A quarter of BPL households hold politicians, government functionaries, and businessmen responsible for corruption. However, 12 per cent of the BPL households think that the citizens are also guilty of aiding and abetting corrupt practices in the State.
Table 3: Who is More Responsible for Corruption?
Source Politician Government officer Businessman All of them Citizen
Urban 16 29 1 37 14
Rural 23 38 1 24 11
Overall 21 36 1 28 12
Andhra Pradesh
189
WITH
1.3 INTERACTION
PUBLIC SERVICES
This study has shown that BPL households are far more dependent on public services provided by Government institutions/ agencies. Moreover, the State Government has initiated many schemes specifically targeted at the poorer sections of the people. Some of the state Government schemes highlighted in the State Budget for 2007-08 are given below: Pucca houses for homeless poor under INDIRIMMA, the State Government claims 1.2 million houses have been built and 1.7 million houses planned in 2007-08. Issues of white ration cards to poor families. 4.37 lakh acres of land distributed to poor and underprivileged Pavala Vaddi loans at 3 per cent interest rate to women self help groups Employment to 1.6 million people under NREGS Free power to farmers
These schemes should have resulted in higher interaction with the 11 public services covered in the study.
Table 4: Interaction with Public Services
Services BASIC Public Distribution System Health Electricity School Education Water Supply NEED-BASED Banking National Rural Employment Guarantee Scheme (NREGS) Police Land Records and Registration Housing Forest
Urban
Rural
Overall
99 82 94 30 37 75 7 14 35 0.4
99 82 90 29 4 73 31 7 14 39 6
99 82 91 29 13 73 31 7 14 38 5
In view of this, it would be interesting to capture the extent to which BPL households interact with various public services. This could be understood better by differentiating between basic services (which are required on daily basis) from need- based services (which are required only occasionally). Over 80 per cent of the BPL households covered in the study have claimed to have interacted with PDS, Health and Electricity services in the last one year. This also indicates that these services are accessible to BPL households. The high interaction could also be due to certain policies of the state government. Schemes such as free power to farmers and BPL families could have resulted in higher percentage of people seeking electricity connections. In comparison, only 13 per cent have interacted with water supply department.
190
Among need-based services, except Police and Forest, the interaction in last one year has been reasonably high when compared with other States in Banking, NREGS as well as Housing. There is no significant difference in the extent of interaction between urban and rural BPL households except in case of few services like Water Supply, NREGS and Forest. While the latter two are essentially rural-based services, the low level of interaction in Water Supply may indicate either a lack of organized system in the rural areas, or community involvement in management through the Panchayats.
Multiple Visits
Earlier studies on corruption have shown that citizen tend to pay bribe to avoid making repeated visits to a department to get a particular work done. In view of this, it would be interesting to study the extent and reason why BPL respondents have to make repeated visits to a service provider. The data shows that in case of basic services, between 7 and 28 per cent of BPL respondents had to make 3 or more visits. In the case of need based services, 40 and 80 per cent of the BPL respondents had to make 3 or more visits.
Table 5: Multiple Visits
Services BASIC School Education Electricity. Hospital Public Distribution System Water Supply NEED-BASED Banking Housing Land Records & Registration Police
BPL Households
Reasons for 3 visits or more for same purpose
28 11 7
New admission Billing, faulty meter, new connection Diagonostic service, blood, operation, medicine, delivery New ration card, addition of members, change of ration shop, change of address
23 70 56 47 43
Maintenance of hand pump, new connection New account, seek loan, deferment of laon Allotment of house / plot, housing loan, Land on lease from panchayat, obtaining records, purchasing stamp paper, sale / purchase For filing a complaint
1.4 PERCEPTION ABOUT SERVICES

Overall, like in other states, the perception about basic services is better in Andhra Pradesh than need based services. In case of basic services, 17-51 per cent of those interacting with think the department is corrupt. In Andhra Pradesh, Water supply department perceives the department to be least corrupt, while PDS is considered to have the highest level of corruption among all basic services. In case of need-based services, between 35 and 72 per cent who interact with the providers perceive the department to be corrupt. The perception about the Police and Land records department
Andhra Pradesh
191
is extremely poor. Close to three-fourths of those who access the services of these departments perceive them to be corrupt.
Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police
There is Corruption
Not sure/Dont know
No Corruption
28 38 28 51 17 6 35 52 72 26 71
32 42 43 29 50 38 55 24 20 37 9
40 20 29 21 33 56 10 24 8 37 20
Various measures claimed to have been taken by the State government aimed at reducing corruption initiatives have yet to make an impact on the perception about corruption in the State. In case of basic services, less than a quarter of people (17-27 per cent) think corruption has declined in respective departments in last one year. In case of need base services, higher percentage (35-66 per cent) think that corruption has actually increased in last one year except in the case of Banking and NREGS services.
Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Decreased
Same
Increased
27 27 20 17 21 44 13 21 14 32 11
54 54 60 46 59 50 53 35 34 46 23
19 19 20 37 21 5 35 44 52 22 66
192
1.5 GRIEVANCE REDRESSAL MECHANISM

In Andhara Pradesh, notably 45 per cent of the respondents reported improvement in the grievance redressal system in the Banking services in last one year. On the other hand, considerable proportion of respondents believes that it has deteriorated in the Police and Land Record & Registration related services.
Table 8: Grievance Redressal Mechanism
(Figures in per cent) Services BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking Police Land Records & Registration Housing Forest National Rural Employment Guarantee scheme 44.7 10.8 6.3 23.1 9.8 24.6 52.1 30.8 44.9 42.3 61 56.7 3.3 58.5 48.8 34.6 29.3 18.7 21.5 24.8 19.8 29.9 13.7 44.4 57.9 63.2 55.6 73.4 34.2 17.4 17.0 14.6 12.3 Improved Same Deteriorated
1.6 INCIDENCE
OF
CORRUPTION
Paid Bribe
Used Contact
Did not take the service because asked for bribe
0.7 8.7 6.9 6.4 7.4 0.5 27.1 55.9 6.0 55.0
0.4 0.1 0.3 0.2 0.8 0.4 10.0 11.0
2.0 2.0 1.0 1.0 1.0 0.6 13.0 1.0
1.5
3.1
Andhra Pradesh
193
Overall, in case of basic services, 6-8 per cent of households accepted to paying bribe or using influence or both. The percentage appears to be low because: (i) most of these basic services are available with out any significant user charge; and (ii) the per capita income is low, so is the ability to pay bribes. Incase of need-based services, there was significant difference in the extent of people paying bribe. The percentage of people paying bribe varied from 7-57 per cent. Highest percentage (5657 per cent) was recorded for Police and Land Records services.
Purpose of Bribe
Table 10: Purpose of Paying Bribe
Services BASIC School Education Electricity Review performance of child; Issue of hostel room Bill payment; Non receipt of bill; Excess Bill; Duplicate Bill; Meter not working or malfunction; Meter instillation; Replacement of meter; New Connection Hospital Public Distribution System Water Supply NEED-BASED Banking Housing Land Records & Registration Pension and Deposit Allotment of plot / house; Release of loan amount Obtain land records; Mutation; Purchasing stamp paper; Property transaction; Income certificate; Land survey; Paying tax; Agricultural land on lease from panchayat Police Make a complaint; As an accused As in-patient & out-patient; For diagnostic service; For blood; For operation; For delivery; For medical certificate Preparation of new card; Deletion & addition of family members; To take monthly ration; Change in address in ration card Maintenance of hand pump; Regularization of unauthorized connection; Water supply restoration Reason for Paying Bribe
In case of basic services, the reasons for paying bribe is more due to bribe seeking practices of the staff at the delivery points. This can be dealt by better monitoring of services rendered by cutting edge level staff, improving effectiveness of vigilance cell and revamping grievance redressal mechanism and by undertaking periodic social audit of some of the services. In case of need-based services, the reasons for paying bribe bring out the necessity for simplification in procedures and transparency in the system. For instance, if land records are available from the Citizen Service Centers (CSC), then scope for bribe will be less.
Route of Bribe
In Andhra Pradesh, the middlemen menace seems to be continuing. In certain services like PDS, Land Records, NREGS, Housing, etc., a majority of people pay bribe through middlemen. The extent of use of middlemen is relatively higher than in many other States.
194 Table 11: Route of Payment Bribe
Services BASIC Electricity Hospital Public Distribution System NEED-BASED
Govt. Dept. Official/Staff
Agent/ middlemen
Local representative
86 89 48 36 89 25 43 83
12 12 52 64 8 71 40 17
Land Record and registration Police National Rural Employment Guarantee Scheme Housing Forest
3 6 17
Estimation of Bribe Paid

In Andhra Pradesh, around 46 per cent of the BPL households reportedly paid bribe in the last one year for availing these basic and need-based services. The amount of bribe paid in the last one year by these BPL households in the 11 services covered in this survey for Andhra Pradesh is estimated to be around Rs. 890 million.
1.7 RELATIVE POSITIONING
OF
SERVICES
Table 12: Level of Corruption: Relative Position

ALARMING VERY HIGH HIGH MODERATE
Health Land Records & Registration
Electricity Water Supply Housing Forest
Public Distribution System School Education Banking Police National Rural Employment Guarantee Scheme (NREGS)
In Andhra Pradesh, Health and Land Records & Registration are found to be at an alarming level of corruption and thereby it needs immediate intensive attention.

State Government schemes resulting in higher interaction Service providers have informed that the State Government has launched various schemes like Rajiv Arogyasri (Health insurance), INDIRAMMA (Integrated Novel Development in Rural Area and Model Municipal Areas), free power to farmers and BPL families. These schemes have resulted in higher interaction of BPL household with service providers. This has increased their work load but the State Government has not taken enough measures like simplification of procedures, improvement of delivery infrastructure, better empowerment and training of employees to effectively cope with increase in demand for these services from BPL households.
Andhra Pradesh
195
Acceptance of presence of middlemen Officials of certain departments like Land Records and Housing have accepted that the BPL households approach middlemen to get their work done. The service providers believe that the use of middlemen by the BPL households reflects the fact that they do not understand the procedures and documentations requirements in most of the cases. Need for greater awareness The service providers feel that there is a need for creating greater awareness about procedures / formalities required to be fulfilled for availing services from these 11 public services. Temporary assignments The last mile service delivery points are over loaded with temporary assignments not necessarily related with their capability or capacity or related to their primary responsibility.
Implementation of NREGS in AP: A Case Study

Our discussion with service providers, opinion makers and civil society groups in the State has brought to the fore certain unique initiatives taken by the State Government in the implementation of NREGS. Some of their key features are as follows: Extensive usage of software for programme design, monitoring and management Opened three million post office accounts for beneficiaries so that salary amount is credited directly and there is no scope for local official to deduct any amount at the time of payment. The State Government has encouraged Social Audit of the works undertaken through NREGS. The State Government claims to have trained 3,500 resource persons at the village, district and state level and conducted Social Audits across 2,000 Gram Panchayats. Some of the successful features like postal accounts are now being replicated in other States as well.
1.9 RTI & CITIZENS CHARTER

Table 13: Services Initiative to Keep Citizens Informed
Services
No. of Display of Offices Citizens Charter 9 7 8 9 11 8 8 5 9 7 8 9 11 8 8 5
Display Board on RTI Act 5 4 5 7 10 4 6 3
Board Displaying Name of PIO 9 6 8 8 11 4 8 4
Availability of Complaint Box 8 7 8 9 11 5 8 5
Banking Electricity Hospital Housing Land Records and Registration Public Distribution System Police Water supply
196
Since there is a need for enhancing wider awareness about Citizens Charters containing procedures /formalities required for availing the desired services; RTI and grievance redressal mechanism, the service providers have provided boards displaying relevant information and installed complaint boxes.
Table 14: Awareness about RTI & Citizens Charter
Variables Overall Location Urban Rural Gender Male Female Age-group 18 25 yrs 26 35 yrs 36 50 yrs Above 50 yrs
RTI 17 23 15 20 10 22 26 14 10
Citizens Charter 18 21 16 19 14 20 21 18 10
Sustained media campaign and ground level initiatives by civil society groups have resulted in higher awareness about the RTI Act among the BPL households. In Andhra Pradesh, close to onefifth (17 per cent) of BPL people are aware of RTI and Citizens Charters. This is relatively high when compared to many other states where the awareness is as low as 5 to 6 per cent. The awareness is relatively higher among the urban, male and younger BPL respondents.
Source of Awareness
Table 15: Source of Awareness
Source Friends Government Source TV Newspaper
Urban 19 2 31 48
Rural 11 9 33 47
Overall 14 6 32 47
Formal media like newspapers and TV have played a key role in widening the awareness about the RTI Act. This was supported by informal sources or word of mouth from friends. Only 6 per cent could attribute their awareness to Government sources.
2. Assam
2.1 ABOUT
THE
STATE
Assam occupies a unique place in the map of India due to its strategic geographical location, natural beauty, rich bio-diversity and above all its very heterogeneous colorful population representing distinct culture. In spite of numerous problems faced by the State, it has registered considerable attainment in different facets of human development. The percentage of poor in Assam is the highest among the seven sister states of the North East. Around 36.09 per cent of the States population continues to live below the poverty line, a figure considerably above the national average of 26.10 per cent (1999-2000). There is a rural urban divide - four out of ten people in rural Assam are likely to be below the poverty line, while in urban areas, the incidence is less than one in ten. Assam has levels and rates of growth of income below the average for the country. In 1950-51, Assams per-capita income was 4.1 per cent higher than the average for the country. By 1980-81, Assams per-capita income was 27 per cent lower than the national average, and by 1998-99, the gap had widened to 45.5 per cent. The state specific poverty line for Assam was calculated at Rs. 387.64 for rural and 378.84 for urban in 2004-05. The inter district inequality of the per capita income is also high. Although the share in the Net State Domestic Product has declined, there is a continued and high dependence on the primary sector, which provides employment to 69 per cent of the total work force. The workforce participation rates for both men and women are lower than those for India. The incidence of unemployment, measured as a per centage of the labour force is increasing in Assam. The total number of households in Assam is 49,35,358 in which about one million are BPL households. A total of 19.7 per cent of the population lives below poverty line with a wide rural urban gap (Rural 22.3 per cent, Urban-3.3 per cent). Seven districts from all over the state were covered under the first phase of the NREGS scheme, and another six districts were included in the second phase.
The Study
For the state of Assam, a total sample of 914 BPL Households (652 rural; 262 urban) were collected from four districts of Dispur, Dhemaji, Kokrajhar and Karbi Anglong. For the purpose of this study, 8 towns and 27 villages were visited. Out of the sampled BPL households 11 per cent urban and about 10 per cent rural eligible households informed that they do not hold BPL card.
198
Initiatives in Assam
There are several initiatives in the area of e-governance in the state. The land records of 20 out of the 27 districts of Assam have been computerized under the Computerized Land Records (CLR) Scheme of the Ministry of Rural Development, Government of India. Arogya, is a web-enabled Management Information System (MIS) for the Hospital, which incorporates Patient Registration, Accounts and Stores Management. PRAGATI, an umbrella of 13 e-Governance applications for implementation in the districts of Assam has been implemented. Jana-Sewa, the Computerized Public Services Facilitation Counter System incorporates features for recording petitions received for various services and providing efficient, timely and quality services to the citizens. Assam has also introduced Griha-Lakshmi to facilitate efficient maintenance of information on various essential public distribution commodities such as food grains, sugar, petroleum products, and other notified items issued to the public through various agencies. It generates various reports such as Card details, Fair Price Shops details, Oil Depot details etc. for effective monitoring and implementation. Abhiyogs enables citizens to lodge their grievances from any Internet caf, CIC, etc. and also to see the status at any point of time. Gramunnayan application software monitors and generates the reports on the progress of various schemes running under SGSY/SGRY/IAY.
2.2 GENERAL PERCEPTION
ABOUT
CORRUPTION

Location Overall Urban Rural Hear say more 21.0 12.6 24.4 Had first hand experience 78.8 87.0 75.4 Dont know /Not sure 0.2 0.4 0.2
In Assam about 79 per cent BPL household said that corruption is real in public offices in their state and they have had first hand experience. Around 21 per cent felt it more hear say than real. More urban respondents had first hand experience of corruption while more rural BPL households think it is hear say.
Increased Level of corruption 37.0
Same as before 59.3
Decreased 3.5
Dont know /Not sure 0.2
Around 60 per cent felt that the level of corruption in the public offices have remained the same as before, while about 37 per cent felt that it has increased.
Assam
Table 3: Who is Responsible for Corruption?
199
(All figures in per cent)
Source Government officer Citizen Politician Businessman All of them News Media
Overall 44.7 17.1 16.0 11.5 9.5 1.2
Urban 52.3 20.2 10.3 8.0 7.6 1.5
Rural 41.6 15.8 18.3 12.9 10.3 1.1
According to the BPL household respondents in Assam, government functionaries are primarily responsible for corruption in public services. Next according to them were the citizens and politicians. More urban respondents find government officers responsible for corruption than their rural counterparts. About 56 per cent of the BPL households reported to know someone who had taken money or other favour for casting vote in favour of a politician. Interestingly, a small per centage of respondents mentioned news media as responsible for corruption.
2.3 INTERACTION
WITH
PUBLIC SERVICES
Services BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking National Rural Employment Guarantee Scheme Land Records & Registration Police Housing Forest
Urban 74.0 60.3 43.9 15.3 20.2 37.8 19.5 23.7 13.4 9.5 7.6
Rural 85.4 63.7 43.9 20.6 6.3 27.2 28.6 20.6 9.7 10.8 9.4
Overall 82.1 62.8 43.9 19.1 10.3 30.3 26.0 21.5 10.7 10.4 8.9
PDS and Health services have been visited by a majority of the BPL household respondents. Among the basic services, Water Supply was the least visited service in the state. Bank/postal service was the most visited followed by NREGS among the need-based services. There is a stark rural-urban difference in availing the services of PDS, Water Supply and Banking. Earlier corruption studies by CMS have shown that people tend to pay bribe to avoid making repeated visits to an outlet to get a particular work done. In view of this it would be interesting to study the extent and reason why BPL respondents have to make repeated visits to get their work done.
200
2.4 MULTIPLE VISITS

The data shows that in case of basic services, between 30 and 52 per cent of BPL respondents had to make 3 or more visits, whereas in case of need base services, the range was between 47 and 68 per cent.
Services BASIC Water Supply Electricity School Education Public Distribution System Hospital NEED-BASED National Rural Employment Guarantee Scheme Banking Housing Land Records & Registration Police
BPL Households
65 59 52 37 30 68 66 63 58 47
Maintenance of hand pump Regularization of unauthorized water connection New connection; To reduce/adjust excess bill To check the quality of mid-day meal Application for scholarship New ration card As in-patients For medical certificate Registration for job card Issuance of job card New account; Seek loan; Deferment of loan Allotment of house / plot; Transfer of ownership Obtaining records; Caste certificate; Income certificate For filing a complaint; As an accused; Remove name from witness
2.5 PERCEPTION
ABOUT
SERVICES
Eight out of ten BPL households identified Water Supply, NREGS and Police services as corrupt whereas over 70 per cent of the respondents identified Health, Forest, Housing and Land Record services to be corrupt. Only 45 and 49 per cent of the respondents perceived corruption in Banking and Education services respectively.
Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking
There is Corruption
Not sure / Dont know
No Corruption
45.4 67.6 71.6 67.5 88.3 48.6
17.2 16.7 20.9 20.5 10.6 22.5
37.4 14.7 7.5 12.0 1.1 29.0

Table Contd...
Assam
Table Contd...
201
Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
70.4 72.6 75.5 81.4 91.8
20.8 14.4 11.8 13.9 6.1
8.6 13.4 12.8 4.6 2.0
While 62 per cent of the BPL households felt that corruption in Water Supply service has increased, around 44 per cent felt the same for Health and Electricity services. More than 50 per cent reported that there has been no noticeable change in the level of corruption in PDS.
Decreased
Same
Increased
31.6 11.0 9.4 8.8 0.0 27.5 11.1 6.3 3.1 5.9 1.0
35.1 45.1 45.9 53.7 38.3 45.3 40.7 40.0 53.6 38.4 16.3
33.3 43.9 44.7 37.5 61.7 27.2 48.1 53.7 43.4 55.7 82.7
Among the need-based services, around half of the respondents felt that corruption has increased in Housing, Forest and NREGS and remained same in Land Records service. A little more than 80 per cent of the respondents felt that corruption in Police service has increased. More than one-third of the respondents think that the grievance redressal mechanism has improved in the last one year in the services of Education and Banking. Deterioration has been observed by 3150 per cent BPL households in Housing, Police, Land records, Forest and NREGS among the needbased services while in Water Supply the mechanism has been deteriorated the most among the basic services.

In Assam, notably 43 per cent of the respondents reported improvement in the grievance redressal system in the School Education services in last one year. On the other hand, considerable proportion of respondents believes that it has deteriorated in the Water supply, Police and Forest services.
202 Table 8: Grievance Redressal Mechanism
Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Land Records & Registration Police National Rural Employment Guarantee Scheme Housing Forest
Improved
Same
Deteriorated
43.1 13.0 8.2 10.4 1.1 30.1 5.1 1.0 6.3 6.3 11.1
40.8 61.8 62.3 67.2 58.5 51.8 60.2 49.0 60.8 62.1 42.0
16.1 25.2 29.5 22.4 40.4 18.1 34.7 50.0 32.9 31.6 46.9
2.7 INCIDENCE
OF
CORRUPTION
Paid Bribe
Used Contact
8.0 30.9 48.0 14.5 17.0 16.7 30.9 38.9 36.2 26.2 76.5
17.2 0.5 0.2 0.7 2.1 0.7 1.2 5.3 2.6 0.8 1.0
0.6 2.0 0.7 0.1 1.1 1.8 1.2 2.1 0.5 0.8 1.0
About 48 per cent of the BPL households reported to have paid extra money for availing Health services. Water and electricity service were next where the households had paid extra money. Among the need-based category, about three-fourths of the BPL households reported to have paid bribe to Police service and around 35 per cent each in Housing, Land Records and Forest services for
Assam
203
getting a work done. Although using influence was not very common among the BPL households, as high as 17 per cent used contacts to avail of Education services.
Purpose of Paying Bribe

Services BASIC School Education Electricity Admission, Application for scholarship, Payment offees, Low attendance, Issuance of certificate Bill Payment, Excess Bill, duplicate bill, provisional bill/non receipt of bill, Incorrect meter reading/not working, New connection/meter installation/replacement, Irregular supply For OPD treatment, and diagnosis/pathological test, As in-patient/getting bed, For Operation/getting blood, For medicine, Delivery, For medical certificate New ration card, Change of address/ration shop, Surrender, addition and deletion in ration card, Release of extra quantity during festivals, To take monthly ration Maintenance of hand pumps, Water meter installation /testing, Bill payment/correction, Water leakage, supply restoration, Water tanker supply Deposit/ withdraw saving, Enquire and Seek loan, Pension, Pay loan installments, New account To pick fuel woods/NTFP, Forest land for constructing/ farming/ grazing of animals, For carrying axe Allotment of plot/house, Release of loan, Construction of toilets, Transfer of ownership Obtaining land records, Agricultural land on lease from Panchayat, Purchasing stamp paper, Purchasing/Selling land/ property, Mutation, Land Survey, Income certificate, Paying tax Issuance/ registration of Job Card, For getting selected as beneficiaries, Wage payment, Payment of unemployment allowances, For including name in old age pension Make a complaint, As an accused, For arranging a witness, Passport verification, Verification of job, Violation of traffic, Character certificate Reason for Paying Bribe
Hospital
Water Supply
NEED-BASED Banking Forest Housing Land Records & Registration
National Rural Employment Guarantee Scheme Police
People reported to have paid bribe to Education service for payment of fees and issuance of certificates. In Electricity, extra money was paid for bill payments and new connections. In Health service, BPL households reported paying extra to get medicine and to be admitted as in- patient in public hospitals. The BPL households reported that in the PDS service they had to pay extra for getting new ration cards issued, for changing address on ration card/changing ration shop. Majority of the BPL respondents said that they had to pay extra for water meter testing. While extra money was paid in Housing service for getting plot allotment, constructing toilets and get loan released, in Land Registration service it was for obtaining land records and selling of land. In Forests service, entry into the forest for picking up fuel wood is a common reason for paying bribe to the forest guards. The BPL households reported to have bribed the NREGS officials to get selected
204
as beneficiary, for registration and issuance of card issued. In Police service, one had to pay bribe even for making/registering a complaint.
Route of Bribe Payment

Services BASIC School Education Electricity Hospital Public Distribution System Water NEED-BASED Banking Housing Forest Land Records & Registration National Rural Employment Guarantee Scheme Police
Govt. Officials
Agent/ Middlemen
Local Representative
92.9 66.7 79.3 95.4 87.5 93.5 59.5 76.0 66.2 66.1 97.3
7.1 34.1 20.7 1.8 12.5 6.5 40.5 24.0 33.8 33.9 2.7
2.8
BPL households reported of paying extra money or bribe to Health, PDS, Water Supply and Electricity among basic services and to Police, Banking and NREGS among need-based services. Among them, a majority reported to have paid the money directly to the government officials/functionaries. For Housing, NREGS, Land, and Electricity, involvement of middlemen or agent was also reported by a large section of the surveyed households.

In Assam, around 68 per cent of the BPL households reportedly paid bribe in the last one year for availing these basic and need-based services. The amount of bribe paid in the last one year by these BPL households in the 11 services covered is estimated to be Rs. 120 million. On an average, each BPL household has paid bribe amounting to Rs. 185.
2.8 SERVICE-WISE POSITIONING

Electricity Public Distribution System (PDS) Water Supply Police National Rural Employment Guarantee Scheme (NREGS)
School Education Banking Forest
Land Records & Registration Health Housing
Assam
205

According to the officials at different service outlets, lack of awareness and education makes the procedures complicated for the common people. Although some of the officials in Assam stated that they provide fully and promptly, others confessed to the delay in delivery of the services. The officials think that improved salary, awareness programmes, political non-interference, transparency and monitoring of the system along with strict government laid rules could help in curbing corruption in different services. Further, all the services felt that recruiting more staff would smoothen the process of service delivery. It was interesting to note that in Assam, PDS officers reported of no corruption in the service and felt increasing staff will reduce the dependence on middlemen. The officers of Electricity, Health, Housing, NREGS, PDS, Land Records and Police reported that they have been getting regular complaints. Banking and forest services had received very few complaints. Applications under RTI from general as well as from BPL families are common. Bank: The measures to curb corruption in banks/post office include computerization (both in banks & post office), call centre & single window system (only for banks). Electricity: Installation of electronic meters, special meetings, field operation, withholding unauthorized connections, computerization, seminars to raise awareness are some of the measures to curb corruption in this service. Education: Regular transfer of staff is undertaken to keep a check on corruption. Forest: Following guidelines and organizing seminars for public awareness help forest service to control the illegal practices. Health: The measures to curb corruption in the hospitals include group meetings and proper monitoring. Housing: Conducting proper investigation and maintaining regularity of the staff are the measures taken by the housing service. Land: Installation of computers and transfer of staff at regular interval help the land administration to curb corruption. Police: Measures to curb corruption includes computerization, special investigation through patrolling, co-operative measures among the police and the general public. PDS: Field investigation and meetings are some of the measures to control corruption. NREGS: Audit, regular meetings, strict vigilance, installation of computers are some of the measures to control corruption. Water Supply: Frequent meetings, maintaining high level of transparency, computer installation and quality control measures by chief engineer are few measures to keep a check on corruption.
206

Table 13: RTI and Citizens Charter
Variables Overall Location Urban Rural Gender Male Female Age-Group 18 25 yrs 26 35 yrs 36 50 yrs Above 50 yrs
RTI 10.3 15.6 8.1 11.0 7.4 21.8 12.1 6.8 4.0
Citizens Charter 0.1 0.2 0.1 0.1 0.2
In Assam, around 10 per cent of BPL households have heard about Right to Information and knew that it had something to do with getting information from the government services. Awareness about RTI Act is relatively higher when compared to many other states where the awareness is as low as 5-6 per cent. The awareness is relatively higher among the urban, male and younger BPL respondents. Urban, female and older BPL population is unaware even about Citizens Charter. As evident from the table below, a very negligible proportion of rural BPL households have heard of Citizens Charter it while in urban areas nearly nobody knows about it.
Source of Awareness
Table 14: Sources of Awareness about RTI
Source Newspaper Radio Friends TV Government Source
Urban 26.9 28.4 14.9 23.9 6.0
Rural 30.2 28.1 17.7 17.7 4.2
Overall 28.8 28.2 16.6 20.2 4.9
Formal media like newspapers, radio and TV have played a key role in creating awareness about the RTI Act. This was supported by informal sources or word of mouth from friends. Around 5 per cent could attribute their awareness to Government sources. Newspaper and friends act as major sources for many BPL households in rural areas while TV is more influential in urban Assam.
Initiative to keep Citizen Informed

The display of Citizen Charter at actual service delivery points visited was rare. However, 4 out of 5 Banks/Post Office and 5 out of 7 Fair price shops visited had Citizens Charter displayed. RTI display
Assam
207
board and PIO boards were found in quite a few office premises visited. Complaint boxes were also available in most of the offices visited.
Departments / Services Bank Electricity Hospital Housing Land Records PDS Police Water supply No. of Display of Citizens Offices Charter 5 8 8 9 7 7 7 3 4 3 2 2 0 5 1 1 Display board on RTI Act 3 4 5 5 4 4 3 2 Board Displaying name of PIO 4 5 6 5 5 4 3 3 Availability of Complaint box 2 7 7 7 7 6 5 3
Peoples Initiative to Curb Corruption

Only 4.5 per cent BPL household respondents informed that they had lodged complaints about corruption in any service. However none could inform about any community measures taken against any corruption in the last one or two years.
Bihar
209
Hear say more
Dont know /Not sure
54 43 46 47 46 43 49 52 42 52
46 57 53 52 54 56 48 48 58 48
1 1 1 1
On the question of whether the level of corruption in the services has increased or decreased, around one-fourth of households in Bihar felt that the level of corruption in the services in the last one-year had increased. More than one-fourth (29 per cent) of these households were of the opinion that, in the last one year, the level of corruption in the services remained same. However, a higher per centage (45 per cent) of the respondents felt that the level of corruption in the services has decreased in the last one year.
Increased
Same as before
Decreased
22 27 26 26 25 23 22 28 33 10
25 30 29 27 30 34 28 22 24 48
52 42 45 46 44 42 51 50 43 43
In the districts of Gaya and Araria, comparatively high per centage (27 to 32) of households perceived that the level of corruption had increased in the last one year. In the remaining three districts, the per centage of such households varied between 21 and 24 felt that the level of corruption in the services had increased.
210
Nearly half of the BPL households in Bihar held government officials and functionaries responsible for the corruption in public services. Around one-fifth of them held politicians responsible. A considerable per centage (18) felt that corruption in public services is because of passiveness or helplessness of citizens. This reflects the extent of awareness of the general public that corruption can be reduced through individual or collective action.
Source Politician Government officer Citizen All of them
Urban 19 47 17 16
Rural 21 47 18 13
Overall 21 47 18 14
About 23 per cent of the BPL households knew someone in the local community who had taken money in one election or other to caste his/her vote in favour of a particular party/candidate.
3.3 INTERACTION
WITH
PUBLIC SERVICES
Among basic services, as high as 90 per cent of BPL households interacted with PDS and health services in Bihar in the past one year. It reflects that the BPL households are largely dependent on these public services. These are followed by education and electricity, 38 per cent and 26 per cent respectively. Only four per cent of BPL households had interacted with Water Supply service because of its unreliability or unavailability.
Services BASIC Public Distribution System (PDS) Hospital School Education Electricity Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Urban
Rural
Overall
89 92 34 35 9 37 17 15 9
90 87 40 21 1 33 20 25 18 30 7
90 88 38 26 4 34 20 22 17 30 8
Among need-based services around one-third interacted with banking service/post office in the last one year.
Bihar
211
The interaction of the BPL households in the four districts (Gaya. Muzaffarpur. Samastipur and Araiya) of Bihar with NREGS in the last one year was only 20 per cent. Similarly, only 22 per cent of BPL households in Bihar interacted with housing services despite the fact that the schemes like Indira Awas Yojana was in operation in all the districts.
Multiple Visits
As a part of good governance, the services available in the government service delivery points should be hassle free in such a way that citizens need not make repeat visits for the same work. Earlier corruption studies have shown that usually the visitors to the service delivery points pay bribe to avoid repeat visits and hassles in the process of getting a particular work attended to. In view of this, the present study tried to identify the proportion of the BPL households who had to make repeat visits in the last one-year and the specific purposes.
Services BASIC Electricity Hospital
BPL Households Reasons for three visits or more for same purpose 22 24 Non-receipt of bill; To reduce /adjust excess bill; Faulty meter Meter installation; New connection; Restoration of connection As in patient / for getting bed Issue of new ration card; Surrender ration card/change of address on ration card; Deletion & addition of family members in ration card; Permission for release of extra quantity during festivals/months. Admission; Application for scholarship; Seek promotion from one class to another Issues of certificate Installation/maintenance of hand pumps Regularization of unauthorized water connection; Water meter installation; Supply of water tankers; Repair of water pipe; Irrigation water Open new account; Seek loan; Defer loan instalment Allotment of plot/house; Sanction/release of housing loan; Construction of toilets; Transfer of ownership Agricultural land on lease from panchayat; Obtaining land records; Purchasing stamp paper; Sale/purchase of land property; Mutation Land survey; Income certificate; Caste certificate For getting selected as beneficiary / registration for job contract; Issuance of job contract card; Payment of unemployment allowances For filing a complaint As an accused Remove name from witness
Public Distribution System(PDS) 28
School Education Water Supply
28 56
NEED-BASED Banking Housing Land Records & Registration 32 60 43
National Rural Employment Guarantee Scheme (NREGS) Police
36
24
The data shows that 56 per cent of the BPL households in Bihar had to make repeat visit (three or more times) for water related services, Among other basic services their per centage varied between 22 and 28. In the need-based services, the worst performer (60 per cent) was Housing, which can explain why so few people from the BPL category interact with this services in the first place. Among the rest of services, between 24 and 43 per cent of BPL households made repeat visits to get their work attended to.
212

Services BASIC Electricity Hospital Public Distribution System School Education Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police
There is Corruption
Not sure/Dont know
No Corruption
58 54 52 43 39 49 12 68 49 54 72
6 2 4 2 3 3 9 6 6 7 3
33 43 44 55 56 47 3 25 44 39 25
Among basic services more than half of the BPL households in Bihar felt that corruption did exist in Electricity, Health and PDS. For other basic services like School Education and Water Supply, the perception about corruption was marginally lower at around 40 per cent. Unlike Bihar in most of the other states, School Education has the least perception of corruption. Among need-based services, highest per centage (72 per cent) of the BPL households felt that corruption existed in the Police service. For the rest of the need-based services, except Forest, the proportion of BPL households who felt that corruption existed in these services was between 49 and 68 per cent. The perception about increase/decrease in corruption also varies widely. Leaving aside the Forest service, per centage of BPL households reporting an increase in corruption varies between 19 for School Education to 50 for Housing. On the positive side, however, the per centage of respondents stating that corruption has decreased in their perception is quite high for nearly all the services except Electricity, Housing and Police.
Services BASIC School Education Electricity Hospital Public Distribution System (PDS) Water Supply
Decreased
Same
Increased
55 34 53 45 56
25 26 27 29 28
19 40 20 27 17
Table Contd...
Bihar
Table Contd...
213
NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police
48 9 26 48 41 25
30 87 25 30 28 36
23 4 50 22 31 40

The per centage of BPL households in Bihar who felt that grievance redressal in the services had improved was comparatively high in all the services varying from 25 to 55 per cent except Electricity and Housing services. In the case of the Hospital, Water Supply and School Education services, more than half of the BPL households felt that the measures had improved. However, most of the BPL households of were of the opinion that the measures for grievance redressal have either deteriorated or have remained same within the last one year.
3.6 INCIDENCE
OF
CORRUPTION
Services BASIC Electricity Hospital Public Distribution System School Education Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Improved
Same
Deteriorated
34 53 44 55 56 48 9 26 48 40 25
27 27 30 26 30 31 84 28 30 29 50
39 20 25 19 14 21 7 46 22 31 25
In basic services, 4 to 17 per cent of the BPL households paid bribe to get their work attended to. In comparison to them, proportion of those who used a contact to get their work done was higher. In need-based services, higher proportion of BPL households in Bihar paid bribe for getting Police and Land Records & Registration services in the last one year. The major difference is in School Education, where nearly 20 per cent of households could avail services as they either paid or used a contact. In housing services, 16 per cent of the households paid bribe and 33 per cent used a contact in the last one year. It is followed by Police where respective per centages are 36.1 and 12.5.
214
It may be mentioned that in Bihar around eight per cent of the BPL households complained individually against the corruption in the public services.
Services BASIC Electricity Hospital Public Distribution System School Education Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police
Paid Bribe
Used Contact
8.1 4.0 7.5 4.7 16.7 9.7 6.3 16.0 27.3 10.0 36.1
32.2 17.2 15.8 14.4 13.9 20.1 1.6 33.0 7.9 19.4 12.5
1.6 0.5 2.0 11.4 5.6 9.4 0.8 13.7 2.4 6.3 13.9
Purpose for Paying Bribe

Both in the case of basic and need-based services covered in the study, bribe was paid for different reasons to get their work attended to. These include medicines, diagnostic services for blood or getting a bed etc. in case of Hospital Service. In the case of NREGS, bribe was paid for wage payment, and to get registered for job or job card issued.
Table 10: Purpose for Paying Bribe
Services BASIC Electricity Hospital Public Distribution System Bill payment Meter installation New Connection As in-patient/ For getting bed As-out patient For diagnostic service, blood, operation, medicine and Delivery (ANC/ PNC) Preparation of new ration card Surrender ration card/change of address on ration card, Deletion & addition of family members in ration card, Permission for release of extra quantity during festivals New admission For promotion of child Issuance of certificate Installation/Maintenance of hand pump Water meter installation Open new account Withdraw savings Seek loan Pension Allotment of plot / houseRelease of House loan Construction of toilets Transfer of ownership Obtain land records Purchasing stamp paper Sale/purchase of land property Mutation Land surveyIncome certificate Caste certificate For registration for job/ beneficiary Issuance of job card Wage payment Payment of unemployment allowance For filing a complaint As an accused Character certificate Reason for Paying Bribe
School Education Water Supply NEED-BASED Banking Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police
Bihar
215

In a majority of cases, bribe was paid to officials/functionaries directly. The use of agents and middlemen were comparatively more in Housing, Banking, NREGS and PDS. The influence of local representatives in Housing and NREGS services is significant. This reflects the power given to them in the selection of beneficiaries for schemes such as Indira Awaas Yojana.
Table 11: Route of Payment of Bribe
Services BASIC Electricity Hospital Public Distribution System School Education Water supply NEED-BASED Banking Land Records & Registration Police NREGS Housing Forest
Agent/ Middlemen
100 88 66 94 83 72 91 85 63 44 100
12 25 6 17 22 11 15 26 32
8 6 11 24

It is estimated that out of total BPL households (six million) in Bihar, 1.6 million paid bribe to one or more services covered in the study in the last one year to get their work attended to. On an average, a BPL household paid Rs. 493 to one or the other services in the last one year as bribe. Overall, the total bribe involved in availing 11 services in the last one year is estimated to be Rs. 793 million.

In Bihar, the extent of corruption in all the services covered in the study varied from service to service. However, out of eleven services covered in the study, six were in the category of very high and three at alarming level of corruption.
ALARMING Electricity School Education Banking VERY HIGH Health Police National Rural Employment Guarantee Scheme (NREGS) Housing Forest HIGH Water Supply Registration MODERATE
Public Distribution System (PDS) Land Records &
216

Senior officials/Public Information Officers (PIOs) of the services covered in the study were contacted to understand their point of view about the corruption and also to know about the measures taken by the services to check this menace. The purpose of the interaction was also to assess the transparency, working environment at delivery points and strength & weaknesses of the services. The officials of almost all the services mentioned that as a first step to check corruption in the services, a complaint book/box is kept for the visitors to register their complaint if he/she faced any discrimination harassment or being asked for bribe, etc. According to them the registered complaint is attended by the senior officials of the concerned services and the steps are taken to provide immediate relief to the complainant and action is taken against the accused official. Apart from this, officials of the services like Housing, NERGS, PDS, and Land records mentioned that a weekly meeting is organized with officials and local representatives in which public and NGOs representatives also participate to monitor the functioning of the services. The senior officials also make surprise visits at service delivery points like ration shops to inspect its functioning. Other measures such as introduction of ration coupon are being taken for the convenience of the beneficiaries and to check corruption. However, the officials admitted that people have to make repeat visits to the services primarily due to administrative procedures that has to be followed and also due to shortage of staff in the services. They were of the view that corruption from public services can be removed by joint effort of the community and the officials. According to them there is need to sensitise both the officials and the public against corruption.

Right to information ACT (RTI 2005) and Citizens Charter are aimed to make people informed about the standards of the services and to bring transparency in the various services.
Table 13: RTI & Citizens Charters
RTI 1.4 1.9 1.1 1.7 1.4 1.6 1.4 0.6
Citizens Charter 1.5 2.3 1.1 1.8 0.7 1.4 1.7 1.9
Bihar
217
Unfortunately, in Bihar the awareness among BPL households about these two is very low. Only one per cent of the BPL households in Bihar were aware about these two. None of the BPL female in Bihar was aware of RTI and Citizens Charter. It seems that not much has been done to sensitize BPL households about RTI and Citizens Charter.
Table 14: Service Providers Perspective
Services No. of Offices 10 10 9 10 10 9 9 9 10 Display of Citizens Charter 0 0 0 1 1 0 0 0 1 Display Board on RTI Act 2 4 2 0 2 2 2 1 4 Board Displaying Name of PIO 2 4 2 0 2 4 2 2 5 Availability of Complaint box 8 8 8 8 7 9 6 5 7
Bank Electricity Hospital Housing Land Records & Registration Public Distribution System Police Water Supply Target Scheme
The above Table reveals that display of Citizens Charter is almost negligible. However, there were Complaint Boxes. About RTI and PIO display boards have also been provided to some extent. Research team visited to the service delivery points and assessed whether the things like availability of Citizens Charter, complaint register/box and board displaying name of PIO that are supposed to be there in the premises were available or not. The table below explains the availability of the Citizens Charter, Display Board on RTI, Board displaying Name of PIO and availability of Complaint Box/Register in the premises at the service delivery points.
3.10 SOURCE OF AWARENESS ABOUT RTI

Source Friends Government Source TV/Radio Newspaper Campaign
Urban 10 40 50
Rural 6 65 17 12
Overall 4 4 55 30 7
Most of those who were aware of this two-year-old RTI Act, heard about it from news media (news paper and television). Campaign by civil society groups also helped in this regard.
4. Chhattisgarh
4.1 ABOUT
THE
STATE
In Chhattisgarh, 41 per cent of the population or about 9.1 million people are living Below Poverty Line (BPL) according to 2004-05 estimates of the Planning Commission. The incidence of poverty is almost same in urban and rural areas, as about 41 per cent of people each are classified as BPL in both these areas. The monthly per capita poverty line cut off for rural areas is Rs 322.41 and in urban areas it has been fixed as Rs 560.00. The present study, which focuses on corruption as perceived and experienced by people living below poverty line, covered a sample of 929 BPL Households, of which more than 70 per cent were from rural areas. These households were covered from eight towns and twenty villages of four districts of Chhattisgarh, including state capital, Raipur. The other three districts visited for the study were Rajnandgaon, Dantewara and Koriya. In these districts, NREG scheme is also being implemented. The survey revealed that around 22 per cent of the eligible BPL households in the state do not possess a BPL card.

Variables Location Urban Rural Gender Male Female Education Illiterate
Hear say more
Dont know /Not sure
20 25 23 25 25 31 22 26 15 14
77 72 75 71 73 65 77 71 84 86
3 2 2 4 2 5 1 3 1
Literate but did not go to school Less than primary Primary Secondary Graduate & Above
In Chhattisgarh, 74 per cent of surveyed BPL households said that the perception about corruption in public utility services was real, and not mere hear say, as they had had first hand experience of the same.
Chhattisgarh
219
A relatively higher percentage of Secondary pass students and graduates have reported first hand knowledge or experience of corruption. This could be due to exposure to media (print media), higher level of awareness amongst this group, and a greater interaction with public services.
Variables Location Urban Rural Gender Male Female Education Illiterate Literate informally Less than primary Primary Secondary Graduate & Above
Increased
same as before
Decreased
63 56 56 63 55 55 60 61 60 75
27 32 32 26 32 32 33 28 29 11
9 11 11 11 12 12 7 10 11 14
Furthermore, close to 60 per cent of BPL households feel that corruption has increased in the last one year. Only 11 per cent of BPL households felt that the level of corruption had declined. A relatively higher percentage of urban, female, and graduate BPL respondents in Chhattisgarh opined that corruption had increased significantly in the last one year. Also, a greater per centage of households in Rajnandgaon and Koriya (62 per cent each) agreed with the same as compared to households in Raipur and Dantewada (around 55 per cent each). Close to half the BPL households in Chhattisgarh hold government officials responsible for corruption. Government functioning therefore needs to be more transparent and responsive to peoples needs in order to change this perception. An environment where citizens can play a leading role in decision-making and developmental activities also needs to be nurtured. One-fourth of the respondents, on the other hand, felt that politicians encouraged the malpractice of corruption. However, 5 per cent of the surveyed BPL households also felt that citizens were responsible for perpetuating the practice of corruption.
Urban 25 53 1 15 4
Rural 25 46 1 19 6
Overall 25 48 1 18 5
220

WITH
4.3 INTERACTION
PUBLIC SERVICES
In case of basic services, barring School Education and Water Supply, the majority of the surveyed BPL households said they had interacted with the respective public services during the past year. Only 16 per cent said they had interacted with the Water Supply service and 20 per cent with the School Education service in the last one year. Amongst basic as well as need-based services, the PDS service had the highest per centage of households (99 per cent) interacting with it in the past year. The Police service on the other hand had the least per centage of people interacting with it (5 per cent) during the last one year.
Urban
Rural
Overall
23 62 86 99 23 48 16 27 7
19 57 73 100 12 38 41 21 16 52 4
20 58 77 99 16 41 41 20 19 52 5
Like the Police service, since other need-based services are also not required on a regular basis, the frequency of interaction with these services was less often than with basic services. Given the geographical characteristic of the state, the interaction with Forest service is higher than that reported for other states in the survey. This also indicates the dependence of a large section of the population on forest produce, especially non-timber forest products (NTFP). However, a greater percentage of households interacted for NREGS as compared to other needbased services. Initiatives have been taken in the past two years to provide information on NREGS to the poor and register them under the scheme. Two organizations Jan Adhikar Sangathan (JAS) and Jan Shakti Sansthan (JSS) had embarked on a massive awareness campaign in May 2006 and a block-level demonstration had been organized, which aimed to highlight the irregularities in implementation of NREGS. The public rally had jolted the state government and within a week, registrations under the NREGS had begun. In the months of June and July 2006, 8,756 people in 172 villages in 52 panchayats were registered and in September and November, job cards were distributed.
Chhattisgarh
221
Multiple Visits
A large number of BPL households also ended up making more than three visits in the last one year to basic as well as need-based services. The data shows that in case of basic services between 10 and 22 per cent of BPL households had to make three or more visits in the last one year. On the other hand, although interaction with need-based services arises only occasionally, 26-46 per cent of BPL households ended up making repeated visits to these services.
Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
BPL Households
22 12 10 10 15
New admission-Issue of certificate New connection; To reduce/adjust excess bill For getting bed/as In patient Preparation of new ration card; Deletion & addition of Family members in ration card Installation/maintenance of hand pumps; Repair of water pipe Open new account Allotment of plot/house Obtaining land records; Caste Certificate For getting selected as a beneficiary; Registration for job card For filing a complaint
44 31 26 46 29

The Electricity, Hospital Service and PDS with whom BPL households have had most frequent interactions in the last one-year were considered to be corrupt by 61 per cent, 59 per cent and 55 per of the surveyed BPL households respectively. The majority of the surveyed BPL households also believed that corruption was rampant in half of the need-based services in Chhattisgarh. Significant per centage of people felt that the menace of corruption was present in most of the basic services except the Education and Water Supply services, where 74 per cent and 59 per cent households respectively said that no corruption existed. However, it is interesting to note that even though a large per centage felt that there was no corruption in the two services, a majority of the surveyed households, had not interacted with the Water Supply and Education service in the last one year, unlike other basic services.
222 Table 6: Perception about Corruption
There is corruption
Not sure
No corruption
20 61 59 55 34 13 26 62 86 41 81
3 3 3 2 4 1 1 1 1 6 2
74 32 37 43 59 84 71 33 10 52 5

Service BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Decreased
Same
Increased
69 24 32 33 53 78 59 33 10 45 9
23 33 31 26 25 13 25 11 18 23 24
8 43 37 41 22 9 16 56 72 32 67
In case of need-based services, the majority of households opined that corruption was prevalent in the Land, Police and Housing services, while almost 84 per cent, 71 per cent and 52 per cent said it did not exist in the Banking, Forest, and NREGS respectively. The various anti corruption initiatives have yet to make an impact on level of corruption in Chhattisgarh as in the case of most of the basic as well as need-based services, a sizable majority believes that corruption has either remained the same or increased. Among basic services, 43 per cent of the people felt that the level of corruption had increased significantly in the Electricity service and 41 per cent said that the same happened in the PDS service. On the other hand, the majority of BPL households believed that in the last one year, the level of corruption had dipped in the Water Supply and Education services.
Chhattisgarh
223

Improved
Same
Deteriorated
61 19 26 29 38 76 49 23 9 38
28 43 45 33 42 17 41 27 24 34 62
11 38 30 38 19 7 10 50 67 28 38
Among need-based services, 72 per cent and 67 per cent of the BPL households said corruption had gone up in the Land Records and Police services respectively. However, the majority felt that the level of corruption had declined in the Forest and Banking services. On grievance redressal, the majority of BPL respondents said that the situation had either remained the same or deteriorated even further in the last one year, in almost all public services. In fact, in case of Police service, none of the respondents felt that grievance redressal situation had improved. Only in case of School Education and Banking services, the majority of households felt that the grievance redressal situation had actually improved in the last one year.
4.6 INCIDENCE
OF
CORRUPTION
The survey showed that in case of basic services, 11 to 21 per cent of BPL households paid bribe or used contact in the last one year, in order to get their work done. In case of need-based services, the per centage of BPL households paying bribes and using contact varied greatly, from 5 per cent in the case of Banking service to 60 per cent in the case of Land Records and Police. These were the two services in which the highest per centage of BPL households (41 per cent and 40 per cent, respectively) paid bribe in the last one year. On the other hand, some BPL households could not avail services, since they were unable to pay bribe. This per centage was relatively high in the case of Hospital and Water Supply service, where around 5 per cent of BPL households were deprived of services because they could not pay bribe.
224 Table 9: Experience of Corruption
Service BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Forest Housing Land Record & Registration National Rural Employment Guarantee Scheme Police
Paid Bribe
Used Contact
3 4 4 3 1 1 8 12 40 1 41
11 11 12 8 20 4 2 44 20 18 17
2 3 6 5
2 3 2 3 2

Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Forest Housing Land Records & Registration NREGS Police Seek loan Cutting of trees To pick fuel wood/non timber forest produce Allotment of plot/house Construction of toilets Caste certificate Obtaining land records Income certificate Issuance of job card For getting selected as a beneficiary Register a complaint As an accused Character certificate New admission Issues of certificates Bill payment New Connection Meter instillation Non receipt of bill Replacement of defective meter For delivery As In-patient/ For getting bed For medicine For diagnostic services For medical certificate Preparation of new card Deletion & Addition of family members in ration card Installation/Maintenance of hand pumps Irrigation water Reason of Paying Bribe
In the PDS service, bribes are paid for preparing a new ration card, whereas in the Hospital service, people paid extra money as in-patients in a hospital and during child delivery. In the School Education service, bribes are paid for securing admission of children in schools. Among the need-based services, bribe is paid to the Police service for registering a complaint and in the Land Record service for obtaining caste certificates and land records. Bribe in the Banking service is paid at the time of seeking a loan and in the NREGS for issuance of job cards.
Chhattisgarh
225

Although an Ordinance the Chhattisgarh Lok Aayog Adhyadesh was promulgated by the Governor in 2002 to inquire about allegations against ministers and other public servants, the survey revealed that in almost all basic services, bribes continued to be paid primarily to government service functionaries.
Service BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Agent/ middlemen
100 70 96 52 50 75 100 38 93 33 77 48 6 67 23 14 1 26 4 17 50 25 31 4
The survey showed that in School Education and Forest services, all the bribes were paid only to service officials. However, some BPL households paid bribe to agents and middlemen active in these services. For example, 67 per cent, 50 per cent and 48 per cent of BPL households paid bribe to middlemen, to avail services of the NREGS, Water Supply and Housing services, respectively. On the other hand, to avail services of PDS, Housing, Electricity and Land Record, BPL households in Chhattisgarh paid bribe to local representatives.

Out of the 0.16 million BPL households in the state, around 22 per cent, paid bribe in availing these eleven services during the year. The amount of bribe paid was estimated to be around Rs. 15.5 million in the last one year. In other words, during the last one year, in availing one or more of the eleven services covered in the study, a BPL household in Chhattisgarh had paid on an average around Rs. 442 as bribe. This is comparatively low compared to other states surveyed. The primary reason may be that the level of poverty being high, the quantum of bribes paid is lower than other states.
226

OF
SERVICES
Service wise position by level of corruption in the state shows that in Water Supply and Police the level of corruption is very high whereas the extent of corruption in Electricity, Health, Schools Education and Land Record & Registration is high.
ALARMING VERY HIGH Water supply Police HIGH Electricity Health School Education Land Records & Registration MODERATE Public Distribution System (PDS) Banking National Rural Employment Guarantee Scheme (NREGS) Housing Forest
4.8 SERVICE PROVIDERS PERCEPTIVE

Problems faced by BPL Households - Service providers in the state said they received complaints from BPL households about delay in receipt of benefits under the employment guarantee scheme, problems related to opening up of bank accounts, sale of agricultural yield, pension payments, issuance of ration cards, high electricity bills, among others. Reasons for unsatisfactory service delivery Officials agreed that people were unable to get all services of government services promptly due to various reasons. Some believed that the inadequate number of workers and staff caused procedural delays, while others opined that lack of necessary documents led to the problem. Some service providers said that part of the blame lies with the cumbersome government procedures, which had to be undertaken for implementing the various schemes that are announced. Schemes Implemented - Service providers, however, informed that they had adopted various initiatives to address problem of BPL households, such as the statewide e-governance project CHOICE (Chhattisgarh Online Information for Citizen Empowerment). The project helps people access a videoconference based Public Grievance Redress System to interact regularly with the Chief Minister and other functionaries. It aims to make the government even more responsive and transparent. Banking officials on the other hand highlighted initiatives they had undertaken to make service delivery efficient and transparent. The Banking service is now giving farmers loans on lower interest rates, making arrangement in the villages itself to buy farmers crop produce and also increasing ATM facilities. Banking officials said that they had also started to provide Internet connections and computer facilities at cash counters to help extend quicker service to customers. Under the Housing service, a Rs. 500 crore development scheme framework has been accepted by the government until 2036, under which homeless people would be provided shelter and develop better habitations.
Chhattisgarh
227
Few other initiatives that were highlighted by officials were the provision of free water tankers at the time of a girls marriage ceremony, a decision to put 100 additional beds in the ward of a hospital and the provision of more facilities and machines to carry out various tests in the pathology service. Need for more pro-poor schemes - Service providers feel that in order to curb corruption, more pro-poor schemes have to be devised and poor peoples special needs have to be kept in mind while doing the same. Some also said that people themselves have to be made aware of their responsibilities to help tackle the problem. Though many service providers claimed that corruption was not rampant in their particular service, some felt that increasing the number of workers and spreading awareness would help improve service delivery.

In Chhattisgarh, 4.1 per cent of BPL respondents were aware of the RTI Act, whereas a much lower percentage of BPL households in the state (2 per cent) were aware of the Citizens Charter.
Variables Overall Location Urban Rural Gender Male Female Age-Group 18-25 yrs 26-35 yrs 36-50 yrs Above 50 yrs
RTI 4 5 3 5 2 8 5 3 2
However, the awareness levels about RTI and Citizens Charter were found to be relatively high amongst urban and younger BPL respondents. Also, a relatively higher percentage of BPL households in the three districts of Rajnandgaon, Dantewara and Koriya were aware RTI as compared to households in Chhattisgrahs state capital, Raipur.
Source of Awareness
Although many a time the media is credited with creating and spreading awareness amongst citizens, the survey revealed that majority of the BPL households in Chhattisgarh felt that it was the interaction with friends and public campaigns, which made them aware of the RTI Act.
228 Table 14: Source of Awareness About RTI
Source Friends Government Source TV Radio Newspapers Campaign
Urban 39 35 4 9 9
Rural 28 22 9 3 22 6
Overall 33 27 7 2 16 7

Services
No. of Display of Offices Citizens Charter 8 8 7 9 10 8 8 7 6 7 6 10 8 6
Display Board on RTI Act 5 4 7 6 10 6 6
Board Displaying Name of PIO 8 6 7 6 10 3 6
Availability of Complaint box 8 8 7 9 8 7 8
Banking Electricity Hospital Housing Land Records & Registration Public Distribution System Water supply
5. Delhi
5.1 ABOUT
THE
STATE
The state of Delhi has close to 15 per cent of its population (about 23 lakh people) living Below Poverty Line. The incidence of poverty is higher in urban areas, with 15 per cent of people classified as BPL, as compared to rural areas, where about 7 per cent of people are living below poverty line. However, rural areas in the countrys capital are only nominally farmland, with the populations material means of support and lifestyles being vastly different from rural areas of other states. Since Delhi is also one of the few metro cities in India, rural areas here seem to be more developed than most others in the country. The present study conducted in Delhi focused on corruption as perceived by the BPL population of the capital. The study collected a sample of 600 BPL Households (371 rural; 229 urban), which were selected from six urban localities and 18 villages of three surveyed districts. The survey revealed that more than half of the eligible BPL households in the state did not have BPL cards whereas about 7 per cent of the ineligible BPL households possessed these cards. But since the study covered only BPL households, the total percentage of ineligible households having BPL cards may be much higher.

In Delhi, 60 per cent of the surveyed BPL households said that corruption in public offices of the government was real since they had experienced it first hand or know that it exists. However, 38 per cent of households thought that corruption was only hear say. A relatively higher percentage of rural, female and illiterate BPL people reported first hand knowledge or experience of corruption. This may be because these sections of society usually tend to be nave, lack awareness and exposure, and become easy victims of corruption. On the other hand, even though the Delhi government has set up The Directorate of Vigilance & Anti Corruption to curb corruption and deal with disciplinary cases against delinquent gazetted officers of all services, over 75 per cent of BPL households still felt that the level of corruption had either increased or remained the same during the last one year. Only a little less than one fourth of BPL households felt that corruption had declined.
230 Table 1: Corruption: Hear Say or Real?
Hear say more
Dont know /Not sure
46 33 40 32 34 38 40 40 36 44
48 67 56 66 66 62 58 56 55 56
3 2
2 4 9
Again, a greater percentage of rural, female and illiterate BPL respondents said that corruption had increased in the last one year. Also, a relatively higher per centage of BPL households (42 per cent) in North eastern part of Delhi agreed with the same as compared to households in North west or South west Delhi.
Increased
Same as before
Decreased
24 42 30 45 44 38 31 30 31 33
51 34 43 35 33 41 44 42 45 44
23 24 25 21 22 21 26 26 23 22
A majority of the BPL households (48 per cent) hold government officers responsible for corruption. Close to one fourth of the respondents on the other hand, feel that politicians encourage corrupt practices. Almost 8 per cent of BPL households also feel that citizenss themselves are responsible for this malpractice.
Delhi
231
Urban 24 52 1 14 9
Rural 24 46 1 21 7
Overall 24 48 1 18 8
5.3 INTERACTION
WITH
PUBLIC SERVICES
BPL households are far more dependent than others on public services provided by the Government and such initiatives facilitate their interaction with public services.
Table 4: Interacting with Public Services
Services BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking Police Land Records & Registration Housing
Urban
Rural
Overall
79 95 59 44 22 45 9 14 8
81 98 63 52 30 52 11 14 4
80 97 61 49 27 49 10 14 5
The survey revealed that majority of the BPL households had interacted with almost all basic services during the past one year, except Water Supply and School Education, where only 27 per cent and 49 per cent of the surveyed households respectively admitted to having had any sort of interaction with the services in the last one year. Since water was supplied through a community tap instead of a personal water connection in many of the surveyed rural localities of Delhi, there was a lesser need for people to frequent or interact with the Water Supply service. As most of the BPL households need to visit government hospitals due to lack of alternative free medical care facilities and have to visit PDS shops regularly to procure ration, the frequency of interaction with these basic services was more than others (97 per cent and 80 per cent, respectively). On the other hand, as need-based services are not required as frequently as basic services, interaction of households with need-based services was comparatively less. However, a greater per centage of households interacted with the Banking service (49 per cent) in the last one year as
232
compared to other need-based services. Need-based services like Forest service and NREGS are not offered in Delhi.
Multiple Visits
Services BASIC
BPL Households
Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking Police Land Records & Registration Housing
32 9 13 17 31
Preparation of new ration card; Deletion/addition of family members in ration card For getting beds/as In-patient To reduce/adjust excess bill; Faulty meter Promotion from one class to another; New admission Supply of water tankers; Installation/maintenance of hand pumps Open new account For filing a complaint Income certificate Allotment of plot/house; Construction of toilets
37 27 37 41
Our survey showed that some BPL households had to make more than three visits in the last one year to basic as well as need-based services. The data shows that in case of basic services 9-32 per cent of BPL respondents had to make 3 or more visits in the last one year. On the other hand, 27 to 41 per cent of BPL households ended up making repeated visits to these services. This is a trend seen in other states covered in this survey as well. It may be because the procedures for accessing these services are cumbersome and not transparent enough. With a view to arrest the corruption menace, the Delhi Government has taken various steps to bring transparency in providing citizen-friendly services and facilitate peoples interaction with public services. The concept of e-governance has been introduced by setting up websites for the various departments, which has in-turn helped reduce citizens visit to offices and provided them information electronically rather than over the counter. Another concept Bhagidari was launched in January 2000, with a view to utilize processes and principles of multi-stakeholder (citizen groups, NGOs and the Government) collaboration and has helped facilitate peoples participation in governance.

The PDS and Electricity services, with which BPL households have had relatively more frequent interaction in the last one year, are considered to be corrupt by 66 per cent and 53 per cent of the surveyed households, respectively.
Delhi
233
However, the majority of households view Water Supply and Education services as non-corrupt. It should be noted, however, that amongst all basic services, BPL households had the least interaction with the Education and Water Supply departments in the past year. In case of three out of the four need-based services in Delhi, more than half the respondents felt that corruption was rampant. The Police department was viewed as most corrupt (70 per cent agreed that corruption exists in the service), while the Banking service was considered least corrupt (20 per cent said that corruption is present in the service). Many banks in Delhi have indeed taken steps to curb corruption by ushering in transparency in operations and enhancing service delivery. They have installed computers at cash counters, put up many ATMs in the capital and also provided online transaction facilities for customers. The benefit of these technological inputs seems to have filtered down to the BPL households as well.
There is Corruption
Not sure
No Corruption
66 44 53 25 19 20 70 60 62
6 8 10 7 15 9 3 10 16
28 44 36 66 63 69 25 24 12
Barring Education, Water Supply and Banking services, a sizable majority believes that corruption has either remained the same or increased in basic as well as need-based services. There is a need to learn from the services that have managed to reduce the perception of corruption. More initiatives need to be taken in other public services, and the on-going anticorruption initiatives need to be vigorously implemented in Delhi, Among basic services, 79 per cent of the people felt that in the last one year corruption had either increased or remained the same in the PDS department. Although, from among all basic services, the least number of people had interacted with the Water Supply and Education services, the majority of respondents believed that the level of corruption in the two services had reduced significantly. In case of need-based services, the highest per centage of households (85 per cent) saying that corruption had either scaled up or remained the same, was seen in the Housing service, followed by the Police service (80 per cent).
234
On the other hand, Banking saw the highest per centage of households (67 per cent) saying that level of corruption had actually come down in the service in the last one year.
Decreased
Same
Increased
21 36 29 53 61 67 18 20 15
36 48 47 35 33 25 48 40 66
43 16 24 12 6 8 34 40 19

Improved
Same
Deteriorated
18 32 25 52 53 16 18 12 58
46 55 59 40 43 66 53 51 36
36 13 17 8 4 19 28 37 6
As far as grievance redressal is concerned, the majority of BPL respondents felt the situation had either remained the same or deteriorated even further in the last one year, in all public services, barring School Education, Water Supply and Housing.
5.6 INCIDENCE
OF
CORRUPTION
The survey showed that in case of basic services, 7 to 18 per cent of BPL households paid bribe or used contact in the last one year in order to get their work done.
Delhi
235
Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Police Land Records & Registration Housing
Paid Bribe
Use Contact
2 8 1 9 4 1 32 15 13
8 9 11 9 3 6 13 10 19 4 1 1 2 1 13 2
In case of need-based services, the per centage of BPL households paying bribes and using contact varied greatly, from 7 per cent in the case of Banking to 45 per cent in the case of Police. The highest per centage of people who did not avail of the service on being asked for a bribe was recorded in the case of Housing. This may be due to the fact that the quantum of bribe asked for is too high for BPL families to afford.
5.7 PURPOSE OF PAYING BRIBE

Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Police Land Records & registration Housing Seek loan Pension Register a complaint As an accused Violation of traffic law Caste certificate Mutation Obtaining land records Construction of toilets Allotment of plot/house Seek promotion from one class to another/ low attendance To reduce/adjust excess bill Faulty meter For getting bed For diagnostic services For delivery Preparation of new ration card To take monthly ration Deletion & addition of family members in ration card Repair of water pipe Supply of water tankers Reason for Paying Bribe
In the PDS service, bribes are paid for preparing a new ration card, whereas in the Hospital service, people pay extra money to get a hospital bed, for diagnostic services or for deliveries. In the School Education service, bribes are mainly given while seeking promotion of the child from one class to another. Among the need-based services, extra cash is paid to the Police department for registering a complaint and bribes in the Banking department are paid while seeking a loan.
236
There has been a drive in the capital to provide services more efficiently with the help of the Right to Information Act, the technology of active websites, and greater participation of citizens through Bhagidari Efforts have also been made by the Delhi government to make vigilance and anticorruption more than just post-mortem actions, and focus on bringing transparency and efficiency in functioning of public services. For example, a periodic review of work done by Vigilance Officers posted in different departments of the Delhi Government is undertaken by a Director (Vigilance). Suitable instructions are provided to the Vigilance Officers of all the departments, who are also called in smaller groups to have detailed discussions even about specific cases. The Chief Vigilance Officer, Government of NCT of Delhi, reviews work done by the Directorate of Vigilance on the last Thursday of every month. However, the extent to which such steps have been able to put a brake on corruption needs to be assessed. This is because many a times when people abstain from paying bribes to public services, they resort to using influence to get their work done and therefore corruption continues to perpetuate. This is particularly true in Delhi where access to political and bureaucratic channels is seen as a way to circumvent the due process of becoming beneficiaries in various schemes.

Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Police Housing Land Records & Registration
Agent/ middlemen
Any Other
83 76 33 65 71 100 100 50 92
17 21 67 33 29 2 3
50 8
In case of all basic as well as need-based services, barring Hospital and Housing services, a large majority of BPL households paid bribe primarily to government functionaries. The survey revealed that in the Banking and Police services in Delhi, the entire bribe amount was being paid to these officials. However, some households also paid bribe to middlemen and agents to help get their work done. For example, 67 per cent and 50 per cent of BPL households paid bribe to middlemen to avail Hospital and Housing services respectively. On the other hand, almost none of the BPL households paid bribe to local representatives except in case of the PDS service. Only 2 per cent of people reportedly bribed local representatives in case of PDS service.
Delhi
237

Out of the 4.57 lakh BPL households in the state, around 18 per cent paid bribe in one or the other of these eleven services. The amount of bribe paid was estimated to be around Rs. 2.96 crore in the last one year. In other words, during the last one year, in availing one or more of the eleven services covered in the study, a BPL household in Delhi had paid on an average around Rs. 367 as bribe.
Service-wise Positioning
ALARMING Health Public Distribution System (PDS) VERY HIGH HIGH Electricity School Education Housing Police MODERATE Water Supply Banking Land Records & Registration
5.8 SERVICE PROVIDERS PERCEPTION

Problems faced by BPL households - In Delhi, most service providers agreed that their respective departments received complaints from BPL households regarding problems of drinking water, late arrival of police at crime scenes, lack of medicines and ambulances in health service, frequent power cuts during summer months, land and property related disputes, delay in issuance of ration cards, among others. Schemes implemented Service providers however informed that steps had been taken to address problems and complaints of BPL households. For example, The Directorate of Vigilance & Anti-Corruption has been set up by the Delhi government to help curb corruption and deal with disciplinary cases against delinquent gazetted officers of all services. To help reduce citizens visit to offices as well as provide them information electronically rather than over the counter, egovernance has been introduced by setting up websites for various public services. The concept of Bhagidari has also been launched in Delhi with a view to utilize processes and principles of multistakeholders collaboration. This has thereby enabled and enhanced peoples participation in governance. Police officials on the other hand said that to ensure timely arrival of police at crime scenes, patrolling activities had been increased and a request for more cars had been forwarded to higher authorities. Looking to enhance service delivery, banking officials said they had installed computers at cash counters, put up many ATMs in the capital and provided online transaction facilities for customers. Need to improve service delivery and create awareness - Service providers said that in order to further curb corruption, awareness about various departmental schemes have to be spread amongst the people, especially the poor. Few of them also stated that timely action by the public services and an honest approach towards the job would help reduce corruption. Some service providers opined that in order to improve service delivery, the number of workers in public services have to be increased and governmental policies have to be strengthened.
238

Although the civil society has actively promoted awareness campaigns, evidently they have not had the desired impact. It should be assessed if the RTI and Citizens Charter boards displayed are legible and appropriately placed. An alternate medium of disbursing information to people, who are illiterate and can not read the displayed boards, should also be put in place.
Services
No. of Offices 8 6 6 8 6 10 8
Display of Citizens Charter 4 2 6 4 2 0 4
Bank Electricity Hospital Housing Land Records & Registration Public Distribution System Water supply
There is an urgent need to take a re-look at initiatives being undertaken in Delhi for educating the public about RTI and Citizens Charter.
Table 14: Extent of Awareness about RTI & Citizens Charters
RTI Overall Location Urban Rural Gender Male Female Age-Group 18-25 yrs 26-35 yrs 36-50 yrs Above 50 yrs 8 5 4 5 7 1 9 3 5
Citizens Charter 3
4 2 4 8 1 4 1
In Delhi, 5 per cent of BPL respondents were aware of the RTI Act, whereas a lesser percentage of BPL households in the state (3 per cent) were aware of the Citizens Charter. However, the awareness levels about RTI and Citizens Charter were found to be relatively higher amongst urban, male and young BPL respondents. Also, a greater percentage of BPL households in South west Delhi (10 per cent) was aware about RTI as compared to households living in North-west (2 per cent) and North-east Delhi (1 per cent).
Delhi
239
Source of Awareness
The media has often been looked upon as an effective source of information. The survey also echoed the same sentiment. Overall, 35 per cent of BPL households felt it was TV, which made them aware about RTI. However, a much lower per centage of rural BPL households (19 per cent) got information from television, as compared to urban households (48 per cent).
Source Friends Government Source TV Radio Newspaper
Urban 16 3 48 10 23
Rural 46 15 19 19
Overall 30 9 35 5 21
Only 9 per cent of households attributed their awareness about RTI to government sources. Since rural BPL households have significantly lesser exposure to television and can not read newspapers (as many are illiterate or poorly educated), majority of them said they obtained information through interaction with friends.
6. Goa
6.1 ABOUT
THE
STATE
The State of Goa is located on the western coast of India in the coastal belt known as Konkan. The State of Maharashtra borders Goa on the north, the State of Karnataka on the south and east. As per the Planning Commission data of 2004-05, 13.8 per cent of the population in Goa is below the poverty line. The poverty line cutoff for per capita income of the urban population is Rs. 665, which is significantly higher than the national average of Rs. 356, while that of its rural counterpart is slightly lower at Rs. 322. Known more as a popular holiday destination, not many would associate Goa with being a strong votary of e-governance. However, Goa has several e-governance initiatives both in the planning and implementation phase, covering a wide range of services. The land records computerization software called DHARANI is being used to issue the ROR (Record of Rights: Form I & XIV and Form D) instantly across the counter to the public from all the offices and Mahiti Ghars (Information Kiosks). All the offices are inter-connected through a Statewide Network called GOANET which makes it possible to issue the ROR of any Taluka from any other Taluka or Mahiti Ghars. Touch screen-based kiosks have also been installed at strategic locations to provide land records information in multilingual form to the people. The present study focuses on corruption as perceived and experienced by people living below the poverty line. The study collected a sample of 516 BPL households of which 76 were from urban areas, and 440 from rural areas. These households were covered from four towns and 12 villages across four districts including Sangam, Madagaon, Panaji and Phonda.

More than three-fourths of the respondents had personal experience of corruption - maximum (97.4 per cent) being in urban areas. the proportion of those who considered it to be more of hear say was far lass. Education-wise, it was also observed that more than 70 per cent of BPL families in each of the education categories had first hand experience/knowledge of corruption. The maximum being 84.6 per cent among Graduates and above. Interestingly, more BPL families in rural areas considered corruption in the State to be here say.
Goa
241
Overall Location Urban Rural Gender Male Female Education Illiterate Literate Less than primary Primary Secondary Graduate & above
Hear say more
Dont know /Not sure
1.3 22.0 18.9 19.7 13.0 21.5 27.2 19.1 17.2 15.4
97.4 74.5 78.6 73.7 80.6 75.9 72.8 77.9 79.8 84.6
1.3 3.4 2.5 6.6 6.5 2.5 2.9 3.0
Significant difference was observed between the rural and urban households reporting an increase in corruption over the last year. While over 84 per cent of urban BPL respondents perceived the level of corruption to have increased, slightly more than half of rural respondents conferred with this view. This links well with the earlier table where 22 per cent of rural BPL respondents considered corruption in public services in Goa to be hear say.
Overall Location Urban Rural Gender Male Female Education Illiterate Literate Less than primary Primary Secondary Graduate & above
Increased
Same as before
Decreased
Dont know /Not sure
84.2 50.7 57.7 43.4 63.0 59.5 45.7 54.4 52.5 69.2
13.2 47.7 40.5 55.3 33.3 39.0 53.1 44.1 47.5 30.8
2.6 0.9 1.1 1.3 2.8 2.5 0.7
0.7 0.7 0.9 1.2 0.7
The difference in perception of a change in the level of corruption was large between male and female BPL respondents. Close to 58 per cent males reported an increase in the malpractice, while the per centage of females reporting an increase in corruption was slightly more than 43 per cent. Hardly anyone irrespective of gender and educational qualifications - thought that corruption has actually declined.
242

Urban 39.5 21.1 6.6 30.3 1.3
Rural 46.6 38.2 1.6 11.4 1.8
Overall 45.5 35.7 2.3 14.1 1.7
Overall, nearly half of the respondents held politicians responsible for corrupt practices and onethird put the blame on corrupt officials. Significantly, just over one in seven thought that the politician-bureaucrat-businessman nexus was responsible. In the urban areas, the proportion is one in three. Unlike other States, BPL families in Goa did not think citizens are complicit in the corruption.
6.3 INTERACTION
WITH
PUBLIC SERVICES
Services BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking Police Land Records & Registration Housing Forest
Urban
Rural
Overall
96.1 93.4 80.3 71.1 5.3 39.5 13.2 14.5 7.9 2.6
85.7 86.6 85.0 58.0 26.1 27.7 10.2 8.4 2.3 9.8
87.2 87.6 84.3 59.9 23.1 29.5 10.7 9.3 3.1 8.7
Among the basic services, the rate of interaction was high (60 per cent and above), except for Water Supply (23.1 per cent). The urban-rural difference was also noticeable in the Water Supply service, with the rural interaction being a little more than 26 per cent, as compared to the urban families, who interacted a little more than 5 per cent. The level of interaction of BPL households with need-based services was comparatively less that in other States of the country . Even the banking services, which had the highest per centage of interaction both at the urban and rural areas, the maximum was only 39.5 and 27.7 per cent, respectively.
Multiple Visits
The data below revealed that in the basic services category, between 4.6 and 13.1 per cent of BPL families had to make repeated visits, while in the need-based services category, the per
Goa
243
centage of BPL families who made more than 3 visits to get their work done was significantly higher. The Housing department had the dubious distinction on this count, where more than 87 per cent of BPL families had to make repeat visits three times or more. The reason Stated for repeated visits were mostly the ones for which the departments have been primarily set-up in the first place, such as Admission in Schools, correcting faulty meters, addition and deletion of names and change in the ration shops, etc.
Services BASIC School Education
BPL Households
6.4
Admission Application for scholarship Seek promotion from one class to another Not allowed to appear in exams Issues of certificate Non receipt of bill To reduce/adjust excess bill Faulty meter; New connection Restoration of connection New supply As in patient/ for getting bed Issue of new ration card Surrender ration card Change in address on ration card and ration shop Deletion & addition of family members in ration card Permission for release of extra quantity during festivals/marriage
Electricity
13.1
Health Public Distribution System (PDS)
4.6 9.5
Water Supply
7.5
Installation/maintenance of hand pumps Regularization of unauthorized water connection Water meter installation Open new account Seek loan Defer loan repayment Allotment of plot/ house Sanction/release of housing loan Construction of toilets Transfer of ownership Agricultural land on lease from Panchayat Purchasing stamp paper Sale/purchase of land property Mutation Paying tax Income certificateCaste certificate Filing a complaint As an accused Passport verification Character certificate
NEED-BASED Banking Housing Land Records & Registration 42.1 87.5 41.6
Police
23.6

In Goa, a wide variation could be seen in the per centages of BPL households having a concrete opinion and those who think corruption does not exist. In the hospital services, slightly more than 72 per cent of BPL families opined to the presence of corruption in the services as compared to 17 per cent who said otherwise. Only in the Water Supply department, the per centage of BPL households who agreed to the presence of corrupt practices in the services were significantly less than those disagreeing to it.
Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Forest Housing Land Records & Registration Police
There is Corruption 68.6 62.1 72.6 69.1 23.5 69.7 86.7 93.8 87.5 89.1
Not sure / Dont know 8.4 12.6 10.4 9.8 10.1 3.9 8.8 6.3 10.4 10.9
No corruption 23.0 25.3 17.0 21.1 66.4 26.3 4.4 2.1
A wide gap could also be observed in the perception of the BPL families as in the need-based services. Almost in all the services, close to 70 per cent and more agreed to an increase in the level of corruption, with the maximum being in the Housing department (93.8 per cent). Barring the Water Supply service in Goa, the BPL families reported corruption to have increased in all the other basic services by more than 50 per cent. While as many as 81.5 per cent of BPL families saw no change in the level of corruption in the last one year in the department of Water Supply, those who reported a decrease within the time frame in any of the services were very less with the maximum being a little less than only two per cent in the Education and PDS departments.
Services BASIC School Education Electricity Health Public Distribution System Water Supply NEED-BASED Banking Forest Housing Land Records & Registration Police
Decreased
Same
Increased
1.9 1.1 1.1 1.8 6.6 2.1
42.7 46.7 46.5 42.4 81.5 34.2 53.3 6.3 29.2 34.5
55.3 52.2 52.4 55.8 18.5 59.2 46.7 93.8 68.8 65.5
Goa
245

Services BASIC Public Distribution System (PDS) Hospital Electricity School Education Water Supply NEED-BASED Banking Forest Land Records & Registration Housing Police
Improved
Same
Deteriorated
2.0 1.3 0.7 1.9 7.2 2.1
56.7 57.7 64.8 55.0 92.4 51.3 75.6 52.1 31.3 58.2
41.3 40.9 34.5 43.0 7.6 41.4 24.4 45.8 68.8 41.8
Mostof the households stated that the grievance redressal mechanism to have either remained the same or deteriorated during the last one year. The highest per centage, which suggested an improvement in the grievance redressal measures was only a little, more than 7 per cent in the Banking services with Water Supply, Forest, Housing and Police having no improvement at all.
6.6 INCIDENCE
OF
CORRUPTION
Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Housing Land Records & Registration Forest Police
Paid Bribe
Use Contact
0.3 4.6 2.0 4.2 5.1 0.7 6.3 25.0 35.6 38.6
1.9 8.5 8.6 6.2 13.7 2.0 25.0 12.5 17.8 7.0
2.3 1.1 2.0 1.3 0.9 0.7 12.5 6.3 2.2 1.8
Overall in the basic services in Goa, it was observed that a higher per centage of BPL families resorted to the use of contacts, as compared to directly paying bribes. Though the gap was not very wide, it was nevertheless, noticeable. Close to 5 per cent of BPL households had paid extra money to the water supply service providers, as compared to a little more than 13 per cent, who
246
used contacts to get their work done. Similar trend could also be seen in the Hospital, PDS, Electricity and School Education services. Among the need-based services, Housing and Banking displayed the same trend as basic services mentioned above, where BPL respondents used contacts to influence service delivery. In case of Land Records & Registration, Forest and Police services, direct bribe was paid by a higher proportion of BPL respondents than those who used contacts.

Services BASIC School Education Electricity Health Public Distribution System (PDS) Water Supply NEED-BASED Banking Housing Land Records & Registration Forest Police Pension Allotment of plot / house Purchasing stamp paper Sale/purchase of land/property To pick non-timber forest produce (NTFP) Illegal cutting of trees For filing a complaint Passport verification Character certificate Low attendance of child Promotion from one class to another New connection As in patient/ For getting bed For medicineDelivery (ANC/PNC) Issue of new ration card Surrender ration card / Change in address on ration card Regularization of unauthorized water connection Reason for Paying Bribe
Even though the State is progressing well in the use of IT for administration sector, corruption was found to be rampant in almost all the services, suggesting the need for better and stricter governance initiatives in the State. In the basic services category, bribe was actually being paid in the Electricity, Health and PDS services for reasons that are very elementary, such as new connection, admission as in-patient hospital or issuance of a new ration card. Similarly, in the need-based services, bribes are being paid for providing the very services for which the departments have been set-up in the first place. Paying a bribe in the forest department for illegal cutting of trees suggests the need for stricter administrative control and introduction of accountability.

In the basic services category, bribe was paid by the BPL families directly to department officials in the case of School Education and Health services, while it was also routed through agents/ middlemen in the electricity and PDS, and water supply services. Even in the need-based services, bribes were paid directly to officials in Housing (100 per cent) and Police (91 per cent) services. It was paid mostly through middlemen in Banking, Land Records & Registration, and in more than one-third of the cases for Forest service.
Goa
247
Services BASIC School Education Electricity Health Public Distribution System Water supply NEED-BASED Banking Police Land Records & Registration Housing Forest
Agent/ Middlemen
100.0 20.0 100.0 26.3 66.7 90.9 16.7 100.0 62.5
80.0 73.7 33.3 100.0 9.1 83.3 37.5

In Goa, around 14 per cent of the BPL households, who had interacted with various services, reported to have paid bribe during the past one year for availing one or more of the 10 services. The bribe amount estimated to be Rs. 5.3 million during the last one year for availing one or more of the ten services covered in the study. On an average a BPL household in Goa paid Rs. 944 as bribe.

ALARMING Electricity School Education Land Records & registration Police Housing VERY HIGH Public Distribution System (PDS) Water Supply Banking HIGH Forest MODERATE Health
In brief, corruption in Electricity, School Education, Land Records & Registration, Police and Housing services has become Alarming while in PDS and Banking is Very High.

The officials across the services felt the need for hiring more staff. They also pointed out that incomplete documentation was the main reason for the delay in delivering the required service in the first place. The study team observed that in all the services, display board on Citizens Charter, and RTI, board having the name of the PIO and complaint boxes were put up. The officials in the Police service added that political interference should be curbed. Often, interference from the higher officials and politicians forces them to let go of the guilty, which is a major loophole in their service delivery mechanism.
248
The officials in the PDS services admitted that no effective measures were taken to improve service delivery in terms of having a single window system or toll free number or a call centre. A positive aspect pointed out by the officials across the departments was that each one of them had complaint box/register, which from time to time was checked by the higher-level authorities. The officials of the Housing service revealed that the cash benefits that were being provided to the BPL families under Indira Awaas Yojna (IAY) were not enough. Additional assistance up to Rs.2,500 was provided under this scheme.

Departments /Services Bank Electricity Hospital Housing Land Records PDS Police Water supply
No. of Offices 4 4 4 3 3 4 4 4
Display of Citizens Charter 4 4 4 3 3 4 4 4
Display board on RTI Act 4 4 4 3 3 4 4 4
Board Displaying name of PIO 4 4 4 3 3 4 4 4
Availability of Complaint box 4 4 4 3 3 4 4 4
The above Table reveals that services have taken lot of initiatives to put display boards for widening awareness about Citizens Charters, RTI and the name of PIO and the availability of complaint box.
RTI 1.2 5.3 0.5 1.4 3.8 0.5
Citizens Charter 0.4 0.5 0.5 1.5
The overall awareness about RTI & Citizens Charter was very low at 1.2 and 0.4 per cent, respectively. Not much difference was observed in location, age and gender wise demarcation. The awareness about RTI among the urban BPL families was better at a little more than 5 per cent. The findings clearly indicate the need of better awareness raising vis--vis measures to improve transparency. Awareness of Citizens Charters among all is almost negligible.
Goa
249
Source of Awareness
Table 15: Source of RTI Awareness
Source Friends TV Newspaper
Urban 20.0 60.0 20.0
Rural 57.1 42.9
Overall 41.7 50.0 8.3
In Goa, the overall awareness about RTI was mainly through TV and friends. While in the rural areas, friends were clearly the most important source of information (57 per cent). In the urban areas it was mainly through television that most of the BPL households came to know about RTI in the last one year.
7. Gujarat
7.1 ABOUT
THE
STATE
Gujarat has recorded impressive growth in Gross State Domestic Product (GSDP) over the last decade, driven primarily by industry, trade and commerce. In spite of this achievement, 17 per cent of population or about 90.69 lakh people are Below Poverty Line (BPL) in 2004-05 according to estimates put out by the Planning Commission. The incidence of poverty is higher in rural areas (19 per cent of people) when compared to urban areas (1319 per cent of people are classified as BPL). According to Gujarat Human Development Report, the poorest are agricultural and rural labour particularly belonging to SC & ST community. Other poor groups in rural areas are marginal farmers and artisans, followed by small farmers in semi arid areas. The poor in urban areas are mainly casual unskilled workers and self-employed in informal sector. The monthly per capita income of BPL people or households in rural areas was Rs. 353 and in urban areas was Rs. 541 in 2004-05. The study brings out that 32 per cent of eligible households in Gujarat do not have BPL cards.
ABOUT
CORRUPTION

Variables Location Urban Rural Gender Male Female Education Illiterate Literate Less than primary Primary Secondary Graduate & Above 32 15 21 33 29 3 68 85 79 64 69 97 3 2 29 25 70 74 1 1 25 29 75 69 2 Hear say more Had first hand experience Dont know/ Not sure
Close to threefourths of BPL households covered in the survey think that corruption in public office is for real and not hear say. Relatively higher percentage of urban, women and highly educated had informed that they had first hand knowledge / experience of corruption.
Gujarat
251
Increased
Remained Same
Decreased
23 23 25 15 18 21 27 21 28 37
47 46 44 56 47 62 48 43 39 60
26 29 29 23 30 17 23 32 31 3
Nearly half of BPL households think that the level of corruption has remained same as in the last oneyear. While a little over quarter of BPL households think that corruption has declined, 23 per cent believe that corruption has increased. Overall, both urban and rural BPL households think that corruption has either marginally declined or remained same in the last one-year. However the bettereducated BPL households think that corruption has either increased or remained same in the last oneyear.
Urban 17 64 6 12
Rural 19 65 1 4 10
Overall 18 65 1 5 10
Unlike in others States, where both Government Official and Politicians are held responsible for corruption, three-fourths of BPL household in Gujarat think that government functionaries are responsible for corruption. Relatively, politicians image is much better - only one-fifth of people hold politicians responsible for corruption. However, 10 per cent of the BPL households think that citizenss themselves are responsible for corruption.
7.3 INTERACTION
WITH
PUBLIC SERVICES
Our research has shown that BPL households of Gujarat are far more dependent on public services provided by Government institutions/ agencies. Therefore, it would be interesting to capture the extent to which BPL household are interacting with various public services. However, there is a need
252
to differentiate between basic services (for which frequent interaction is required) and need based services, where the extent of interaction is less.
Services BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking National Rural Employment Guarantee Scheme Police Land Records & Registration Housing Forest
Urban
Rural
Overall
95 84 77 69 37
99 85 72 71 32
97 85 74 71 34
39
35 29
36 29 16 33 22 36
18 29 23 34
15 35 21 37
In most of the basic services (except water), the per centage of BPL household interacting with the departments is 71 per cent and above. Service-wise, an over-whelming 97 per cent of households had interacted with PDS in the last one year. Since BPL household tend to migrate in search of employment, Gujarat has introduced the concept of roaming ration card to ease the accessing of ration shop. This could also have resulted in high per centage of BPL household interacting with ration shops. Considering the fact that migration is both a statewide as well as a nation-wide phenomenon, this model could be used in other states as well. Health service is the next most important department in terms of interaction (8519 per cent) due to introduction. With high interaction with Jyotigram Yojana aimed at providing 24-hour supply of electricity to all its villages and the BPL families at concessional rates, interaction with the Electricity Department is 74 per cent. With such high interaction with basic services, it is not surprising that Gujarat ranks first in the country in the implementation of 20-point programme for poverty alleviation. Even in the case of need-based services, the per centage of BPL households interacting with services is much lower than the basic services but higher when compared to some of the other states in the country.
Multiple Visits
Earlier corruption studies have shown that citizens tend to pay bribe to avoid making repeated visits to a department to get a particular work done. In view of this, it would be interesting to study the extent and reason why BPL respondents have to make repeated visits.
Gujarat
253
Service BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Bank Housing Land Records & Registration Police
BPL Households
37 12 52 15 59
Admission, application for scholarship, issue of certificate New connection, restoration of connection, billing, meter related issues Medicines, to get admitted as in-patient, for diagnostic services, blood transfusion etc. Issue of new ration card, addition of family members Installation & maintenance of hand pump, supply of water tanker Account opening, seeking loan, pension Allotment of plot, release of loan Obtaining land records, mutation, land survey, income certificate File complaint, to get the name removed as accused
58 71 50 55
The data shows that in case of basic services, 12-59 per cent of BPL respondents had to make three or more visits, whereas the proportion in need-based services was between 50 and 70 per cent. The highest rate (59 per cent) of repeat visits was recorded for Water Supply in case of basic service and Housing (71 per cent) in the case of need-based services. Being a water-deficient and drought-prone state, the importance of Water Supply service cannot be underestimated. Moreover, with rapid growth of urban population due to migration and in conjunction with rising income, the demand for housing service is likely to increase in the future.
7.4 PERCEPTION
ABOUT
SERVICES
There is a sharp difference in the corruption perception about basic and need-based services. A majority of the BPL households surveyed perceive that there is no corruption in basic services barring the PDS. Relatively less per centage of BPL household who have interacted with Education Department in the last one year viewed department to be corrupt. In case of need-based services, 49-74 per cent of BPL households think that there is corruption except in Banking. In case of Police department, and overwhelming 74 per cent of BPL household who had interacted with the service, perceived it to be corrupt. More than 40 per cent of the BPL households think that corruption has declined in most of the basic services. In case of need-based services, the level of corruption has either declined or remained same except in the case of Police department. This indicates a favourable perception regarding governance in the state, and better standard of service delivery as compared to other states.
Service BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Bank Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
There is Corruption
Not sure/Dont know
No Corruption
8 20 30 46 22 20 49 74 70 54 74
9 10 14 16 12 20 13 8 14 17 21
83 70 56 34 66 60 38 18 16 29 5

Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Bank Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Decreased
Same
Increased
73 58 56 41 44 54 39 26 26 33 3
24 28 34 43 51 40 41 43 46 45 42
3 14 10 16 5 6 20 31 28 22 55

In most of the services, grievance redressal mechanism has either improved or remained the same. Substantially, it has improved in education (61.6 per cent), Electricity (47.6 per cent), PDS (37.8 per cent) and Water Supply (36.4 per cent). It has deteriorated most in Police (41.8 per cent) followed by Housing (35.3 per cent) and Land Records & Registration (29.9 per cent).
Gujarat
255
Service BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking Police Land Records & Registration Housing Forest National Rural Employment Guarantee scheme
Improved
Same
Deteriorated
37.8 45 47.6 61.6 36.4 45.9 1.4 23.7 23.4 30.5 29.5
45.6 45 48.2 35.4 56.5 47.3 56.8 46.4 41.3 45.5 45.9
16.6 9.9 4.2 3.0 7.0 6.8 41.8 29.9 35.3 24.0 24.6
7.6 INCIDENCE
OF
CORRUPTION
Overall, in case of basic service, up to 10 per cent of the households have accepted to have paid bribe, used influence or both to avail services. Interestingly, up to three per cent of BPL households have not used the service at all since bribe was sought from them. This works out to about thirty per cent of those who are paying bribe in case of most of the services.
Services
Paid Bribe
Used contact
BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Bank Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police 5.3 10.8 19.3 30.3 7.3 60.3 3.0 1.8 9.0 10.2 4.7 13.1 5.6 0.3 30.2 7.6 12.0 2.7 1.7 6.7 5.3 8.8 4.2 1.2 1.6 3.4 3.8 2.9 0.5 2.0 2.3 3.3 2.2
256
Incase of need-based services, there was a significant variation (from 5-60 per cent) in the extent of people paying bribe. BPL households interacting with Police paid bribe to the extent of 60 per cent to get their work done. It was followed by Land Records & Registration (30.3 per cent). The per centage of BPL households who have reported that they could not avail the particular service because they could not afford to pay bribe is higher in certain services like Housing (30.4 per cent) and NREGS (12 per cent). One striking feature of the data is the voluntary rejection in taking a service on being asked for a bribe. For example, a slightly higher per centage of people rejected paying bribe in Housing than those who actually paid it or used a contact. A similar phenomenon is reported for NREGS as well.

Services BASIC School Education Electricity Hospital Public Distribution System (PDS) Water Supply NEED-BASED Bank Housing Land Records & Registration Loan processing Deposit Withdrawal of saving Account opening Allotment of plot / house Release of loan amount Obtain land recordsMutation Purchasing stamp paper Property transaction Income certificate Land survey Paying tax Agricultural land on lease from panchayat Filing a complaint As an accused Passport verification Character certificate Admission Review performance of child Application for scholarship Issue of certificate Mid-day meal Bill payment Non receipt of bill Excess Bill Meter instillation Meter mal or non-functioning New Connection Restoration of connection As in-patient and out-patient For diagnostic services and operation For medicine and medical certificate Issue of new ration card Deletion & addition of family members To take monthly ration Maintenance of hand pump Bill payment/correction Supply of water tankers Reason for Paying Bribe
Police
In case of Basic services, the reason for paying bribe is more due to bribe seeking behavior of the staff at the implementation level. However, it needs to be recognized that Gujarat has better standards of service delivery as compared to other states. Special attention needs to be paid to services such as Police, Land Records & Registration and Housing, whose service delivery is worst. These need-based services of all three require administrative direction, simplification of procedures transparency and accountability. This should be the focus of the state government in future.

Our earlier studies have noted the importance of middlemen to get the job done. However, this study brings out that incidence of paying bribe directly to the department officials is on the rise. In all the departments, most of the respondents had paid bribes directly to their officials.
Gujarat
257
Services BASIC School Education Electricity Hospital Public Distribution System NEED-BASED Bank Land Records & Registration Police
Agent/ middlemen
91 89 93 75 78 72 86
0 8 5 24 22 26 13
9 2 2 1 2 1

Despite being credited to be a better governed state, around one-third of the BPL households paid bribe in the last one year to one or other of these selected services. The total estimated amount of bribe paid is estimated to be Rs. 369 million during the last one year. In other words, a BPL household paid Rs. 637 on an average during the last one year to get services in one or the other eleven services under study.
OF
SERVICES

ALARMING Health VERY HIGH Housing HIGH Public Distribution System (PDS) Banking Land Records & Registration Police National Rural Employment Guarantee Scheme (NREGS) MODERATE Electricity School Education Water Supply Forest

Most of the service providers interacted with informed that their offices have computer at front-end desk to facilitate public service delivery. They also mentioned about one-day governance scheme and Civic Centres being opened to facilitate their service delivery. Besides this, help lines have been opened for assistance. Almost all the departments have complaint box/register, which are regularly checked for grievance redressal. Service providers in Land Record department felt that sometimes due to lack of staff, it takes more than usual time to deliver their services. In the Electricity department, bill payments are encouraged through banks and post offices as well as mobile vans. Officials interacted under PDS admitted that the list of BPL households has some discrepancies, which needs to be sorted out to include eligible households. Some officials reported interference of local politicians as a reason
258
for inclusion of ineligible families. The research team did observe the presence of middlemen outside the offices for preparing ration card.
SWAGAT A Case Study of Grievance Redressal SWAGAT enables direct communication between the citizens and the Chief Minister. In Gandhinagar, the fourth Thursday of every month is a SWAGAT day to attend the grievance of people. Grievances are logged in, transmitted and made available online to the officers concerned who have to reply within 3-4 hours. The departments concerned then have to be ready with the replies, before 3 p.m., when the Chief Minister holds video-conferences with all the districts concerned. Complaints are called one by one and the Chief Minister examines each complaint in detail. The information sent by the department is also reviewed online in the presence of the complainant and the Collector/District Development Officer/Superintendent of Police and other concerned officials. Attempts are made to offer a solution on the same day. The record is then preserved in the SWAGAT database and a separate log is maintained for each case.

In Gujarat, efforts have been made to widen awareness about Citizens Charters and RTI Act by putting up display boards. To facilitate citizens to convey their grievances / suggestions complaint boxes have also been provided.
Services No. of Offices 6 8 7 8 7 8 8 8 Display of Citizens Charter 2 6 6 4 5 6 4 4 Display Board on RTI Act 3 4 4 6 5 5 4 6 Board Displaying Name of PIO 4 4 3 2 4 5 2 6 Availability of Complaint box 6 8 5 2 7 3 4 4
Banking Electricity Hospital Housing Land Records & Registration Public Distribution System Police Water supply
Table 14: Extent of Awareness about RTI & Citizens Charters

Variables Overall Location Urban Rural Gender Male Female Age Group 18 25 yrs 26 35 yrs 36 50 yrs Above 50 yrs
RTI 3.8 4.9 3.3 4.5 1.0 1.3 5.1 4.3 2.4
Citizens Charter 2.1 2.8 1.7 2.2 1.6 2.7 1.1 2.5 2.4
Gujarat
259
Despite sustained media campaign about the RTI Act, hardly 6 per cent of the BPL households are aware about RTI and 3.8 per cent about Citizens Charters. This clearly brings out a need for lot of field-base support to ensure that BPL households are aware and utilize these tools to avail hassle free public services.
Source of Awareness
Despite poor performance of the government sources, media - both electronic and print, and friends have played most important role in widening the awareness about RTI Act.
Source Friends Government Source TV Radio Newspapers Politicians Campaign Others
Urban 23 9 23 27 14 5
Rural 32 13 19 3 19 6 3 3
Overall 28 11 21 13 17 4 4 2
8. Haryana
8.1 ABOUT
THE
STATE
Haryana, with a little more than 3.7 million households, has around 0.5 million households living below poverty line, two-thirds of them residing in rural areas. The Planning Commission estimates the poverty line in the State to be Rs. 414.76 per capita per month for rural areas and Rs. 504.49 for urban areas. The rural poverty line is well above that of the national figure, while it is lower in comparison with the national poverty line for the urban sector. The present study, which focuses on corruption as perceived and experienced by people living below poverty line, covered a sample of 625 (474 rural; 151 urban) BPL Households. These households were covered from six towns and eighteen villages of three districts namely Ambala, Mahendragarh and Sirsa of Haryana. The present study revealed that out of the total BPL households in Haryana, a little more than 21 per cent of the eligible households do not have BPL cards.

Despite state initiatives like e-DISHA to improve the services of the public utilities and to bring accountability and transparency in the public offices, more than three-fourths of the BPL households in the state reportedly had first hand experience of corruption. BPL households in both urban and rural locations had similar experience, and did not vary much with educational status. On being enquired about level of corruption during the last one year in the state, only 8 per cent opined that corruption had decreased. On the other hand, more than half felt that it had increased, suggesting that sustained and concerted approach is needed towards improving service delivery in public utilities as well as ensuring transparency and accountability in the system. According to the BPL households surveyed, government officials, followed by politicians, are mainly responsible for corruption in public services in the state. Only about 10 per cent blamed private citizens for perpetuating corruption, while more than a quarter blamed both public servants and the politicians.
BPL Households Government officials Politician All of them Businessman Citizen 37.0 26.0 27.0 0.2 9.0
Haryana
261
Despite efforts to bring transparency and fair practices in electoral process, more than 40 per cent know someone locally who had paid money to influence vote in favour of a particular candidate or party.
8.3 INTERACTION
WITH
PUBLIC SERVICES
Services BASIC Public Distribution System (PDS) Hospital Electricity School Education Water Supply NEED-BASED National Rural Employment Guarantee Scheme (NREGS) Banking Housing Police Land Records & Registration Forest
BPL Households
96 85 77 64 15 37 35 17 16 14 5
Note: Due to low forest area in Haryana, interaction with Forest Service is less and has not been considered for further analysis
Among the basic services, PDS, hospital and electricity services were the ones which were most accessed by BPL households in the state during the last one year. The high degree of interaction shows greater dependence of the BPL population on these services. Water Supply was reported to have the least interaction, which may be due to the fact that most towns and villages in Haryana are already covered by the service. Among need-based services, more than one-third of BPL households had interacted with NREGS and Bank/post office. Compared to other states, the interaction of BPL families in Haryana with services such as Housing, Police and Land Records is low.
Multiple Visits
A household could be expected to visit or interact with the service for more than once during a year to avail certain services like taking monthly ration from Fair Price Shop, for bill payment etc. Earlier studies too have shown that repeated visits to get the same work done leads to harassment and inconvenience and induce users to pay bribe. This is especially the case for need-based services such as Housing and Police. Compared to basic services, repeated visits were more reported by BPL households for all the need-based services in Haryana. In banking service, more than 80 per cent of the BPL households had to visit three times or more to open a new savings account or to get a loan sanctioned.
262
Similarly, in spite of computerization of land records, the BPL households who interacted for land record related services had to visit three times or more for the same purpose, thereby indicating that procedures are cumbersome and not transparent enough.
Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Housing
BPL Households
Reasons for three visits or more for same purpose
19 31 20 6 49
For Scholarship, Admission To reduce/adjust excess bill, non receipt of bill, faulty meter To get bed, for medical certificate, for medicine To get new ration card, To carry out changes in ration card Installation/Maintenance of hand pumps, repair of water pipeline To open a new savings account, Seek loan Allotment of plot/house, construction of toilets Obtaining land records, purchasing stamp paper, paying tax To get selected as beneficiary, To get a job card For filling a complaint, remove name as witness
81 76 78 72 56
Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police

BPL households perception about specific services were gauged on three parameters first, whether corruption exists in the service; second, direction of corruption, i.e., whether it has increased or decreased; and third, whether grievance redressal has improved or deteriorated in the last one year.
Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police
There is Corruption
No corruption
44 47 55 64 60 74 72 56 56 72
38 39 3 21 23 11 20 30 29 15
18 14 43 15 17 15 8 14 15 13
Haryana
263
More than half of the BPL households, who interacted with the respective services in Haryana, think that corruption exists in all these services. Maximum households reported corruption in need-based services like Banking, Police and Housing. Irrespective of the nature of service (basic or need based), significant per centage of BPL households felt that corruption has increased during the last one year in these services. The highest perception of increase is for Police service. Among those BPL households, which had interacted with Police during the last one year, more than half felt that corruption has increased in the department. For other services, majority of the BPL households saw no change corruption in the respective services, despite claims of initiatives by the State government.
Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Decreased
Same
Increased
14 8 9 9 8 10 7 6 9 8
47 48 64 58 54 68 48 54 60 36
39 44 27 33 38 22 45 40 31 56

Regarding satisfaction with grievance redressal mechanism in both basic and need-based services, the study noticed that around half or more of the BPL households in Haryana felt that there has been no change in grievance redressal system in most of the services. Less than 15 per cent of the BPL households noticed some improvement in grievance redressal system in these services; highest in School education and least in Police service.
Improved
Same
Deteriorated
14 8 9 10 12
51 52 62 65 60
34 40 29 25 28
Table Contd...
264
Table Contd...
NEED-BASED Banking Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police 9 8 5 8 3 69 52 45 58 44 22 40 51 34 53
8.6 INCIDENCE
OF
CORRUPTION
More than 40 per cent of the BPL households, who interacted with Police service during the last one year, paid bribe for one reason or the other. Comparatively, the percentage of BPL households who paid bribe to the other services was less. Water Supply and Land Records & Registration were the ones in which more than 10 per cent of the BPL households used a contact to get the work done.
Services
Paid Bribe
Used Contact
BASIC School Education Electricity Hospital Public Distribution System (PDS) Water Supply NEED BASED Banking Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police 43.6 1.0 2.0 2.7 4.8 3.4 0.9 2.0 1.0 10.3 2.2 1.4 1.9 3.4 1.3 0.2 1.7 1.0 1.0 2.1 0.2 1.5 0.4 1.0 13.7 0.2 1.3 0.4 0.8 9.5
In fact, as high as 9.5 per cent of BPL households needed water supply could not avail this service as they could not pay the bribe. Two to three per cent of BPL households also could not avail services of land registration, police and housing for the same reason.

The purposes for which the BPL households paid bribe could be broadly classified as behaviourbased for basic services and due to systemic malpractices and lack of transparency in case of needbased services. Comparing the reasons for paying bribe with purposes for which BPL households visited three times or more (discussed earlier in the report) shows that across services, purposes for which
Haryana
265
households visited three times or more is similar to reasons for which bribe was paid. This implies that simplifying the procedure and better transparency in services could bring down the need for repeated visits. Without this, corruption harassing the citizens cannot be reduced.
Services BASIC School Education Electricity Hospital Public Distribution System (PDS) Water Supply NEED-BASED Banking Housing Land Records & Registration National Rural Employment Guarantee Scheme Police Seek loan Open new savings account Allotment of Plot/house Construction of toilets Agricultural land on lease from Panchayat Obtaining land records Purchasing land Getting job card Registering a complaint To remove name from the witness list For Admitting the ward Adjust Excess bill/Bill payment To replace faulty meter New connection For getting bed For treatment/operation For getting medicine For ration card For getting monthly ration Maintenance of hand pump Reason for Paying Bribe

Most of the BPL families routed bribes through Agents/ Middlemen. However, less than 15 per cent paid bribes directly to the government functionaries/staffs of the concerned service. In few services like Police, Land Records & Registration, Electricity and Housing bribe was paid to local representatives. To get a new ration card, BPL households depend on their panchayat representatives. Similarly for getting a house under government schemes like Indira Awaas Yojana, dependence on elected representatives is more, which could be a reason for bribe being paid to them.
Services BASIC Electricity Health Public Distribution System (PDS) School Education Water Supply NEED-BASED Banking
Govt. Dept. Official/Staff 7.5 8.9 10.3 14.4 11.6 9.1
Agent/ middlemen 52.2 62.4 64.7 51.2 60.0 69.4
Local representative 40.3 28.7 25.0 34.3 28.4 21.5

Table Contd...
266
Table Contd...
Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police
14.3 7.7 4.6 8.3 3.0
64.3 51.9 44.8 58.1 43.6
21.4 40.4 50.6 33.6 53.5

Around 11 per cent of the 0.5 million BPL households in the state paid bribe for one or the other of these eleven services. The total amount estimated to be around Rs. 67.5 million in the last one year. In other words, a BPL household in Haryana had paid on an average around Rs. 1,200 as bribe during the last one year in availing one or more of the eleven services covered in the study.

ALARMING Health
OF
SERVICES
HIGH Water Supply MODERATE Electricity Public Distribution System (PDS) School Education Banking Land Records & Registration Police National Rural Employment Guarantee Scheme (NREGS) Housing Forest
Table 10 : Level of Corruption Relative Position

VERY HIGH
Health is perceived as the only service having corruption on an Alarming scale, followed by Water Supply categorized as High.

Lack of Accountability- According to the service providers, there are cases where services are not delivered on time causing inconvenience to BPL households as there is no accountability and sense of responsibility. As a result, people often do not come forward to register complaints against corrupt practices. They hoped that with RTI Act, service delivery would become more transparent and accountable but it would take time for BPL families to actively use this instrument. Inadequate staff strength-The officials in almost all the services were of the opinion that staff strength is not adequate which in turn increases the workload and causes delays. According to the service providers, low salary is another reason for indulging in corrupt practices.
Haryana
267
Bribe to bypass routine procedure - According to the service providers, sometimes service seekers want to avail the services bypassing the procedures and thereby instigate staff to seek bribe. Interference of politicians is another reason, which deprives eligible BPL households to avail the benefits targeted at them. Lack of awareness among BPL households about the procedure and formalities required to avail a service is another reason for service providers getting involved in corrupt practices. Regular interaction with BPL households and organizing special camps to create awareness would sensitize them about their rights and benefits.

Citizens Charters and RTI Act-2005 are aimed at making people aware about the standards of the services available in respective departments and to bring accountability in service delivery.
Services
No. of Offices 10 9 12 5 9 12 9 8
Banking Electricity Hospital Housing Land Records & Registration Public Distribution Systems Police Water supply
Boards displaying provisions of Right to Information (RTI) Act-2005 and names of PIOs are visible for more services than on Citizens Charters. Similarly, visibility of complaint box in all the services is better than Display Boards. A very small per centage of BPL household have even heard about these two. Only 3 per cent of the BPL households had heard about RTI and even lesser per centage (1 per cent) in Haryana knew about Citizens Charter. Such awareness is better in urban areas, male and those BPL respondents who are above 26 years of age.
Variables Overall Location Urban Rural
RTI 3 7 1
Citizens Charter 1 2 1
Table Contd...
268
Table Contd...
Gender Male Female Age-Group 18 25 yrs 26 35 yrs 36 50 yrs Above 50 yrs 2 3 3 3 1 1 1 3 2 1 1
Along with government, individuals and community should take pro-active initiatives to fight against corruption. Encouragingly, around six per cent of the BPL households in Haryana lodged complaints with higher authorities against corruption in government services in the last one year.
Source of Awareness
Source Friends Government Source TV Radio Newspapers Politicians Campaign Others
Urban 38 8 15 8 8 23
Rural 14 29 14 14 14 14
Overall 30 5 20 5 10 5 20 5
The present awareness about Right to Information Act can be attributed to media (35 per cent)both print and electronic, followed by friends (30 per cent) and campaign (20 per cent). The role of government sources is minimum (5 per cent). Again, awareness in urban areas is better than rural areas.
8.10 SOME E-GOVERNANCE INITIATIVES

Haryana Registration Information System (HARIS) )
The HARIS provides registration of documents at the Tehsil/Sub-Tehsil premises. HARIS includes various security checks, on-line capturing and storing of photos of buyer, seller and witnesses, information about registration fee, printing of registration certificate and various statistical reports. Thus, this software provides maintenance of database and on-line query facilities. This system is being implemented at 88 Tehsils/Sub-Tehsils. Encouraging results have been received in terms of revenue maximization, cost minimization and public convenience. The HARIS website is also being developed to provide rates, procedures and other information to public.
Haryana
269
Land Records Computerization Project (LRCP)

The Land Records Computerization system involves different sub-systems like Jamabandi creation, Mutation, Khasra Girdavari, Generation of New Jamabandi, On-line query on Land Records Information, Nakal (Record-of-Right) generation and distribution services to public. The project is being implemented in all the19 districts of Haryana.
Below Poverty Line Survey [BPL] Query System

The survey of all Households living Below Poverty Line has been conducted in rural areas of Haryana. A database for this census has been created at all DRDAs. The application has been developed keeping utilization of BPL database at DRDA as well as Directorate Level. The System is a Web-enabled query system and the database is being used for implementing various schemes for BPL population in the State.
9. Himachal Pradesh
9.1 ABOUT
THE
STATE
As per the Census 2001, the total number of households in Himachal Pradesh is 1.22 million. Out the total households in the state, it is estimated that nearly 10 per cent live below poverty line. The state is regarded as a model example of development for other hill states in India. Its per capita income is higher than the national average. The cut off point for poverty line (Rs. per capita per month) for rural population in Himachal Pradesh is Rs. 394 and for urban population the cut off point is Rs. 504. NREGS was implemented in two districts (Chamba and Sirmaur) in the first phase and has been extended to two more districts (Kangra and Mandi) in the second phase. The present study focuses on corruption as perceived and experienced by people living below poverty line. The study is based on a sample of 628 BPL households (465 rural; 163 urban). These households were covered from six towns and eighteen villages of three districts of the state, namely, the state capital (Shimla) and two NREGS district (Chamba and Kangra). In Himachal Pradesh, a number of schemes like SGSY, SGRY, IAY, Rajiv Gandhi Awaas Yojna are in operation for the upliftment of the economic condition of the BPL families. The present corruption study revealed that out of the total BPL households in the state, one-fifth have not got BPL cards. In rural areas 19 per cent of BPL households have not got BPL card while the corresponding figure in the urban areas is 26 per cent.

In Himachal Pradesh, less than one-fifth of BPL households perceived that corruption in the services is real. Irrespective of location, 77 per cent of the BPL households believed that the corruption is more here say. The figure, however, is lower for educated section of the BPL population (graduate and above).
Variables Location Urban Rural Gender Male Female
Hear say more
Dont know/ Not sure
77 77 72 84
15 19 23 10
7 4 5 5
Table Contd...
Himachal Pradesh
Table Contd...
271
Education Illiterate Literate Less than primary Primary Secondary Graduate & Above 83 89 75 75 77 47 11 12 21 18 20 53 5 4 7 3 -
Among three districts, comparatively higher per cent (92 per cent) of BPL households in Kangra believed that corruption is more here say. The responses of the BPL households suggest that corruption in the state is not rampant, and can be linked to the economic achievement of the state in terms of reducing the incidence of poverty.
Increased Location Urban Rural Gender Male Female Education Illiterate Literate Less than primary Primary Secondary Graduate & Above 10 19 27 15 19 33 19 13 15 17
Same as before
Decreased
56 55 55 56 65 46 52 54 53 47
15 20 19 20 12 23 11 24 20 13
A majority (55 per cent) of he BPL households believed that the level of corruption has remained same in the in last one-year. Nearly an equal proportion (one-fifth) of BPL families think that corruption has either increased or decreased. Overall, in the perception of the BPL respondents, the existing low level of corruption is being maintained.
Urban 41 24 12 14
Rural 36 31 7 15
Overall 37 29 8 15
In the state more than one third of the BPL households held politicians responsible for the corruption, while 29 per cent put the blame on government officials.
272
Around four per cent of the respondents shared that they knew someone in the community who were paid money to cast vote in favour of a particular candidate or party.
9.3 INTERACTION
WITH
PUBLIC SERVICES
Among the basic services, the highest level of interaction of BPL households was found for Health, PDS and Electricity services. Given that the incidence of poverty is low in Himachal Pradesh, the data implies that public services are dependable and efficient, and is preferred by BPL families over private providers, especially in the case of Health services. The responses show that a high proportion of BPL households in the state had electricity connections. Water Supply was the only service that showed a low interaction rate.
Services BASIC Health Public Distribution System Electricity School Education Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Urban
Rural
Overall
98 92 93 52 42 50 14 14 6
97 97 85 45 19 48 34 9 12 43 3
97 95 87 47 52 49 34 10 13 43 4
Among need based services, between 34 and 49 per cent of the BPL households interacted mostly with Banking/Post office, NREGS and Forest services. Nearly 50 per cent of BPL households interacted with Banking service /post office followed by NREGS.
Multiple Visits
As a part of good governance, services available in the government delivery points should be hassle free in such a way that citizens need not make repeat visits for the same purpose. Earlier corruption studies have shown that many a times the visitors paid bribe to avoid repeat visits. In view of this, the present study tried to identify the proportion of the BPL households who had to make repeat visits in the last one-year and the specific purposes. Among basic services comparatively higher per cent of the BPL households had to make three or more visits in Water Supply, Health and School Education. Among need-based services, except for Police, comparatively higher proportion of BPL households had to make three or more visits in almost all the services.
Himachal Pradesh
273
Services BASIC Electricity
BPL Households
Non receipt of bill To reduce /adjust excess bill Faulty meter Meter installationNew connection Restoration of connection Agricultural connection Regular supply As in-patient / for getting bed Preparation of ration card Surrender ration card/ change in address on ration card Change of ration shop Deletion & addition of family members in ration card Admission Application for scholarship Seek promotion from one class to another Low attendance of ward To check the quality of mid-day meal Issue of certificate Not allowed to appear in exams Installation/maintenance of hand pumps Regularization of unauthorized water connection Water meter installation Repair of water pipe Irrigation water Open new account Seek loan Defer loan instalment Allotment of plot/house Sanction/release of housing loan Construction of toilets Agricultural land on lease from panchayat Obtaining land records Purchasing stamp paper Sale/purchase of land property Mutation Land survey For getting selected as beneficiary/ registration for job contract Issuance of job contract card Payment of unemployment allowances
Health Public Distribution System (PDS)
39 8
School Education
17
Water Supply
53
26
For filing a complaint As an accused

More than fifty per cent of the BPL households think that there was no corruption in the 11 services covered in the service. Percentage of those who felt that corruption did exist in the services varied across services. Comparatively higher proportion of the BPL households perceived that corruption existed in Police, Land Records and Registration among need-based services. It has to be noted, however, that the interaction of BPL families with these two services is also extremely low, and corruption may be more hear say than real.
Services BASIC Electricity Health
There is Corruption
No corruption
10 23
17 22
59 49
Table Contd...
274
Table Contd...
Public Distribution System School Education Water Supply NEED-BASED Banking Forest Housing Land Records & Registration Police
13 7 8 4 10 11 23 30
18 16 22 15 23 33 33 23 48
64 66 60 69 60 35 35 57 22
National Rural Employment Guarantee Scheme 13
Majority of the BPL households (nearly 70 per cent) for almost all the 11 services covered in the study felt that level of corruption in the services had remained same in the last one-year.
Services BASIC School Education Electricity Health Public Distribution System Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Decreased
Same
Increased
22 23 23 27 16 24 42 20 18 12 13
73 69 62 64 77 71 52 72 66 78 74
5 8 15 9 7 6 6 8 17 11 13

The per cent of BPL household who felt that grievance redressal in the services improved in the last one year varied service to service (25 to 48 per cent). For PDS, Health and Banking, 48 per cent of the households felt that grievance redressal in the services had improved in the last one-year.
Services BASIC Public Distribution System Hospital Electricity
Improved
Same
Deteriorated
48.3 43.2 48.1
46 46.2 45.5
5.7 10.6 6.4

Table Contd...
Himachal Pradesh
Table Contd...
275
School Education Water Supply NEED-BASED Banking Police Land Records & Registration Housing Forest National Rural Employment Guarantee scheme
35.9 32.9 49.2 26.1 25.3 25 41.7 37.2
60 63.3 47.6 65.2 59.5 71.9 52.6 52.8
4.1 3.8 3.3 8.7 15.2 3.1 5.8 10.1
9.6 INCIDENCE
OF
CORRUPTION
Service BASIC Electricity Health Public Distribution System School Education Water Supply NEED BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Paid Bribe
Used Contact
0.4 0.2 4.3 1.7 1.2 0.3 1.3 3.2 3.8 1.5 13.0
0.5 0.2 0.7 1.7 1.2 1.3 1.3 3.2 1.3 0.5 4.3
0.2 0.7 1.0 0.3 0.6 0.7 0.6 1.6 1.3 0.5 4.3
Out of the total BPL households who interacted with the service, only a small per cent of them paid bribe or used a contact in the last one year to get their work attended to. Among the services covered in the study highest per cent four per cent of the BPL households paid bribe in Police service (13 per cent). In the services like Housing, Land Record & registration and PDS, only 1 to 1.5 per cent of the BPL households had to pay bribe to get their work attended to. In rest of the services, less than one per cent of the BPL households had to pay bribe.

Bribe was paid for different reasons. Mostly, bribe is paid to get selected as a beneficiary or to access special type of services (in-patient in hospitals, application for scholarship etc.).
276 Table 10: Purpose of Paying Bribe

Service BASIC Electricity Service Health Service Public Distribution System School Education Water Supply Service NEED-BASED Banking Service Housing Service Land Records & Registration National Rural Employment Guarantee Scheme Police Service Seek loan Allotment of plot/house Reason for Paying Bribe
Bill payment New connection As in-patient/ For getting bed Preparation of new ration card To take monthly ration. New Admission Low attendance of child/promotion from one class to another Application for scholarship Installation/Maintenance of hand pumpRepair of water pipe
Obtain land records Mutation Paying tax For getting selected as beneficiary/ registration for job Issuance of job card For filing a complaint Remove name from witness Character certificate

Those who paid bribe, paid it mostly to government officials and functionaries. However, in NREGS bribe was paid to agents and/or middlemen. In Housing, Land Record & Registration and PDS, the involvement of agent /middlemen varied between 16 and 50 per cent.
Services BASIC Electricity Health Public Distribution System School Education Water supply NEED-BASED Banking Land Records & Registration Police National Rural Employment Guarantee Scheme Housing Forest
Agent/ Middlemen
100 100 69 100 100 100 67 100 50 100
16 33 100 50
15

It is estimated that out of the total BPL households (119,000) in Himachal Pradesh, around seven per cent of the households paid bribe to one or more services covered in the study in the last one-
Himachal Pradesh
277
year to get their work attended to. On an average a BPL household paid Rs. 217 to one or other service in the last one year as bribe. Overall, total bribe involved in availing eleven services in the year is estimated to be Rs. 1.89 million.
OF
SERVICES
In Himachal Pradesh corruption in all the services is at moderate level. In comparison to other states, corruption in Himachal Pradesh is of very low level.
ALARMING Health VERY HIGH HIGH MODERATE Electricity Public Distribution System (PDS) School Education Water Supply Banking Land Police National Rural Employment Guarantee Scheme (NREGS) Housing Forest

Senior officials/PIOs of the services covered in the study were contacted to understand their points of view about the corruption in their respective services and also to know about the measures taken to check corruption. An attempt was also made to assess the transparency in the services, working environment of the service delivery points and strengths and weaknesses of the services. Nearly half of the officials interviewed mentioned about the availability of Citizens Charter. Officials of the services like PDS, Hospital and Electricity mentioned that information under RTI is sought by general public but the practice is not very common. Nearly half of the visited office had designated PIO. The officials mentioned that there is complaint book in the office premises and the senior official of the respective services perform periodic checks, followed by prompt and appropriate action. In Chamba district, there is a complaint centre as well as information centre in the campus of D.M. office. One can complain against the official of the service. The District Magistrate takes immediate action against the complaint filed in the complaint centre. One can visit the centre and can get the required information immediately. According to officials, a number of initiatives have been taken by the state government to provide prompt service to common man and to bring accountability and transparency. As a part of this, Himachal Pradesh government has computerized of almost all the services.
278

Research team visited to the service delivery points and assessed whether Citizens Charter, complaint register/box and board displaying name of PIO that are supposed to be there in the premises were available or not. The table below explains the availability of these things at the service delivery points.
Services
No. of Offices 7 5 6 5 3 7 6 5
Bank Electricity Hospital Housing Land Record Public Distribution System Police Water supply

RTI 2.9 2.5 3.0 4.1 0.8 6.1 2.9 4.1 0.8
Awareness on RTI among BPL households in Himachal Pradesh was nearly 3 per cent and 2.4 per cent BPL households were aware of Citizens Charter. The awareness of these two was mostly among male BPL. Younger BPL respondents were more aware about RTI.
Source of Awareness
A majority (51 per cent) of those BPL households, who had heard about the RTI Act, got the information from news media (newspaper and television). 32 per cent heard about it from friends. 11 per cent of the BPL households heard about RTI from sensitization campaigns.
Himachal Pradesh
279
Urban 38 13 25 13
Rural 31 3 41 14 10
Overall 32 3 35 16 11
10. Jammu & Kashmir

10.1 ABOUT
THE
STATE
According to the Census 2001, the total number of households in Jammu & Kashmir stands at 15,68,519. Out of them, only seven per cent households live below poverty line, one of the lowest incidence of poverty in any state of India. The cut off point for poverty line (Rs. per capita per month) for rural population in Jammu & Kashmir is Rs. 391 and for urban population is Rs. 553 (source: Planning Commission of India). During the first phase of implementation of NREGS in the country, three districts (Doda, Kupwara and Poonch) were included from Jammu & Kashmir. In the second phase, two more districts (Anantnag and Jammu) were added. The present study focuses on corruption as perceived and experienced by people living below poverty line in Jammu & Kashmir. The study collected a sample of 624 BPL Households (467 rural; 157 urban). These households were covered from six towns and eighteen villages of three districts of Jammu & Kashmir, i.e., the state capital (Srinagar) and two NREGS districts (Anantnag and Doda). The present corruption study revealed that in Jammu & Kashmir around 30 per cent of the households of BPL income group did not have BPL cards. There is no significant difference between urban and rural areas in this regard.

Nearly fifty per cent of the BPL households in Jammu & Kashmir felt that corruption in public services was real. Higher proportion of male BPL respondents felt that corruption actually existed in public services . Compared to rural areas of Jammu & Kashmir, the perception of corruption actually existing was higher, as was the case with graduates compared to other education categories. Among the three district of Jammu & Kashmir included in the survey, perception of corruption among BPL families was the highest in Srinagar (63 per cent) while in Anantnag and Doda districts, the proportion was 48 and 40 per cent, respectively.
Variables Location Urban Rural
Hear say more
Dont know/ Not sure
40 39
55 46
5 16
Table Contd...
Jammu & Kashmir

Table Contd...
281
Gender Male Female Education Illiterate Literate Less than primary Primary Secondary Graduate & Above 44 45 37 30 37 24 48 38 54 60 41 71 8 17 9 10 22 5 38 44 50 37 12 19
Around 27 per cent of the BPL households in Jammu & Kashmir reported that in their opinion, the level of corruption in public services had increased in the last one year. The perception was higher for male and educated BPL respondents.
.Table 2: Level of corruption
Increased
Same as before
Decreased
31 26 29 19 24 23 28 28 30 52
61 62 62 62 68 66 49 53 65 33
8 10 8 18 6 11 22 19 5 5
A majority of the BPL households in Jammu & Kashmir held government officials and politicians equally responsible for the corruption in public services. In the urban areas, the perception was that all three, namely, politicians, government officers as well as citizens themselves were responsible for the existence of corrupt practices.
Urban Politician Government officer Citizen All of them 30 37 8 22
Rural 33 48 12 6
Overall 32 45 11 10
282
Eight per cent of the BPL households in Jammu & Kashmir knew someone in the community who had taken money or other favour for casting his/her vote to a particular party or candidate.
10.3 INTERACTION
WITH
PUBLIC SERVICES
Compared to other states of the country where the survey was carried out, the interaction of BPL families in Jammu & Kashmir with public services is low. Among basic services, the highest interaction was found to be for PDS (77 per cent overall) but with little variation between rural and urban areas. This may be due to the recent history of the state, where political unrest affected the delivery of public services. In the case of need-based services, the interaction was even lower. Even for demand-driven services such as NREGS and Housing, the proportion of families reportedly accessing these services was lower than 30 per cent. For the remaining services, it was lower than 20 per cent. It has to be kept in mind, however, that the level of poverty in Jammu & Kashmir is also one of the lowest in the country, and this may have an effect on the demand for public services.
Services BASIC Public Distribution System Health School Education Electricity Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Urban
Rural
Overall
76 48 23 29 22 19 27 24 16
78 52 26 22 15 16 14 21 12 28 13
77 51 26 24 17 17 14 22 15 28 14
Multiple Visits
As a part of good governance, the services available in the delivery points should be efficient so that way that citizens need not make repeat visits for the same purpose. Earlier corruption studies have shown that many a times the visitors to the service delivery points pay bribe to avoid repeat visits in the process of getting a particular work attended to. In view of this, the present study tried to identify the proportion of the BPL households who had to make repeat visits in the last one-year and their specific purposes.
Jammu & Kashmir
283
The data shows that between 11 and 40 per cent of the BPL households in Jammu & Kashmir had to make repeat visit (three or more times) to basic service delivery points for the same purpose. The proportion was higher in the case of need-based services.
BPL Households
30
Non receipt of bill To reduce /adjust excess bill Faulty meter Meter installation New connection Restoration of connection Regular supply As in-patient / for getting bed Preparation of ration card Surrender ration card/ Change in address Change of ration shop Deletion & addition of family members in ration card Permission for release of extra quantity during festivals/months. Admission Application for scholarship Seek promotion Issues of certificate Not allowed to appear in exams Installation/maintenance of hand pumps Regularization of unauthorized water connection Supply of water tankers Repair of water pipe Irrigation water Open new account Seek loan Defer loan instalment Allotment of plot/house Sanction/release of housing loan Construction of toilets Transfer of ownership Agricultural land on lease from panchayat Obtaining land records Purchasing stamp paper Sale/purchase of land property Mutation Land survey Income certificate For getting selected as beneficiary/ registration for job contract Issuance of job contract card Payment of unemployment allowances
Health Public Distribution System
11 21
26 40
42
63
For filing a complaint As an accused Remove name from witness Passport verification Verification for job Character certificate

For most of the public services, both basic and need-based, a high proportion of BPL households in Jammu & Kashmir perceived that corruption existed in the services. For the services like Housing, Forest, Police, and Land Records & Registration, as high as 70-80 per cent of the BPL households felt that corrupt practices were prevalent in these services. This may also be one of the reasons of comparatively low level of interaction of BPL households with public services (as mentioned earlier in the report). For most of the services, majority of the BPL households in Jammu & Kashmir felt that there has not been any change in the level of corruption in the past one year. This suggests that the state government might not have taken much initiative in the past one year to check corruption in public services.
Services BASIC Electricity Health Public Distribution System School Education Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
There is Corruption
Not sure
No Corruption
60 34 54 44 70 52 78 81 74 45 77
11 41 17 30 16 22 14 9 10 37 16
14 16 19 21 12 17 8 9 13 11 5

Services BASIC School Education Electricity Health Public Distribution System Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Decreased
Same
Increased
31 11 35 15 7 21 11 9 17 7 7
51 52 55 71 75 58 36 38 41 78 25
18 38 11 14 18 20 53 53 42 16 68
For the services like Police, Forest and Housing, more than fifty per cent of the BPL households felt that the level of corruption in these services had gone up in the last one year. Only in School Education and Health, there was a positive perception about a decrease in the level of corruption as compared to the previous year.

Out of eleven services covered in this study, only for services like Health, Education, Banking and Land Records & Registration, between 25 and 37 per cent BPL households felt that grievance redressal in the services improved in the last one year.
Jammu & Kashmir

285
Services BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking Police Land Records & Registration Housing Forest National Rural Employment Guarantee scheme
Improved
Same
Deteriorated
17.6 37.2 6.7 32.1 8.7 27.2 6 3.2 18.8 9.4 8.4
73.4 56.2 67.1 56.6 65.0 54.4 41.7 75.8 43.8 78.1 82.2
8.9 6.6 26.2 11.3 26.2 18.4 52.4 21.1 37.5 12.5 9.3
10.6 INCIDENCE
OF
CORRUPTION
Service BASIC Electricity Health Public Distribution System (PDS) School Education Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police
Paid Bribe
Used Contact
28.9 6.9 9.6 10.1 22.3 4.9 18.8 31.7 33.7 0.9 21.4
3.4 0.6 1.9 3.8 3.9 1.0 2.9 3.2 2.8 3.6
7.4 7.9 4.4 6.3 4.9 8.7 3.1 10.1 6.3 2.8 14.3
Among basic services in Jammu & Kashmir, nearly 30 per cent of the BPL households paid bribe for Electricity service. In the state the electrification of households is very low (only 63 per cent). Power Sector Reforms Rating (2006) by CRISIL-ICRA, Jammu & Kashmir had got lowest score (-9.58) among all the Indian states. The other basic service where a high proportion of the BPL households paid bribe was Water Supply service.
286
Among need-based services, highest proportion of BPL households in Jammu & Kashmir paid bribe in Land Records & Registration, Housing, Police and Forest service in the last one year. The difference between perception and actual payment of bribes is reflected in the case of NREGS, where less than 3 per cent either paid bribe or used a contact, compared to 45 per cent of BPL households. In Jammu & Kashmir nearly 12 per cent of the BPL households reported that they complained against corruption in the services. The proportin of BPL households complaining against corruption is comparatively higher in comparison to most of other states.

The BPL households paid bribes for various reasons, most importantly, for even the most routine work such as paying electricity bills, for change of address, addition or deletion of names from ration card, or even to open a new account in banks.
Services BASIC Electricity Bill payment Non-receipt of bill To reduce/adjust excess bill Faulty meter New connection / Restoration of connection Regular supply As in-patient/ For getting bed As out-patient For diagnostic service For blood For operation For medical certificate/ attestation Delivery (ANC/ PNC) Preparation of new ration card Surrender ration card/ change in address on ration card Change of ration shop Deletion & addition of family members in ration card Permission for release of extra quantity during festivals/ months. Admission For promotion of childIssuance of certificate Application for scholarship Installation/Maintenance of hand pump Regularization of unauthorized water connection Supply of water tankers Repair of water pipe Irrigation water Open new account Seek loan Allotment of plot/house Sanction/release of housing loan Construction of toilets Transfer of ownership Agricultural land on lease from panchayat Obtain land records Sale/purchase of land property Mutation Land survey Income certificate For getting selected as beneficiary/ registration for job. For filing a complaint As an accused Passport verification Verification for job Character certificate Reason for Paying Bribe
Health
NEED-BASED Banking Housing Land Records & Registration
National Rural Employment Guarantee Scheme Police

Bribe was paid exclusively to officials/functionaries in services like Police, NREGS and Forest. This is true of most other services in varying measure. The only exceptions are School Education and Water Supply service, where the influence of middlemen was higher than 30 per cent.
Jammu & Kashmir
287
Though 32 per cent of the BPL households held politicians responsible for corruption in the services (as mentioned earlier in the report), in none of the services bribe was paid to local representatives.
Services BASIC Electricity Health Public Distribution System School Education Water supply NEED-BASED Banking Land Records & Registration Police National Rural Employment Guarantee Scheme Housing Forest
Govt. Dept. Official/Staff 81 86 87 69 65 80 94 100 100 93 100
Agent/ middlemen 21 19 16 31 35 20 6 7

It is estimated that out of the total BPL households (106,000) in Jammu & Kashmir, 30,917 households paid bribe to one or more services covered in the study in the last one year to get their work attended to. On an average, a BPL household paid Rs. 557 to one or other service in the last one year as bribe. Overall, total bribe involved in availing eleven services in the year is estimated to be Rs. 17.2 million.
OF
SERVICES

ALARMING Electricity Public Distribution System (PDS) Water Supply VERY HIGH School Education Banking Housing Forest HIGH Health Land Police MODERATE National Rural Employment Guarantee Scheme (NREGS)
In Jammu & Kashmir, among 11 services considered for this study, the extent of corruption in most of the services is very high or of alarming level in seven of them. Only in NREGS the corruption can be considered to be moderate.

Senior officials/PIOs of the services covered in the study were contacted to understand their points of view about the corruption in the services and also to understand the measures taken by the services providers to check corruption.
288
Officials of all the services except Electricity service mentioned that there were complaint registers and Citizens Charter in their respective services. The officials of the services like Housing and NREGS mentioned that they organize meetings at village level to make the villagers aware of the schemes and benefits available to BPL families as well as the process and procedures for availing the benefit of the schemes. The officials of the services like Housing, NREGS and Electricity also mentioned that computerization of the services have been done at different levels to provide prompt service to the visitors.

Research team visited to the service delivery points and assessed whether Citizens Charter, complaint register/box, and board displaying name of PIO were available or not. The table below explains the availability of these in the service delivery points.
Table 13: Services Initiative to keep Citizens Informed
Services
No. of Offices 8 7 9 6 3 8 9 3
Table 14: Extent of Awareness about RTI and Citizens Charter

RTI 4.5 8.3 3.2 5.3 9.8 5.9 2.1 2.5
Though the RTI Act has not been enforced in J & K, the awareness about it among BPL households was 4.5 per cent. The awareness level on RTI among BPL households in Jammu & Kashmir was
Jammu & Kashmir
289
higher than that of many states (like Bihar, Uttar Pradesh, West Bengal, Meghalaya, Haryana etc.) where the Act has been enforced. However, awareness about Citizens Charter among the BPL households was comparatively low. Only 0.6 per cent of the BPL households in Jammu & Kashmir were aware of Citizens Charter. Awareness of both RTI and Citizens Charter was higher in urban areas. Gender-wise, the awareness of the RTI was higher among male members of the BPL households. Age-wise, the awareness about both RTI and Citizens Charter was higher among younger BPL respondents.
Source of Awareness
Urban 40 13 47
Rural 9 5 41 46
Overall 22 3 30 46
Most of those BPL households, who had heard about the two years-old RTI Act, heard about it from news media (newspaper and television). 22 per cent heard about it from friends. Location wise, comparatively high per cent of the BPL households in rural areas heard about it from news media. In urban areas of Jammu and Kashmir most of the BPL households heard about RTI Act from friends.
11. Jharkhand
11.1 ABOUT
THE
STATE
The state of Jharkhand has immense mineral resources with concentration of countrys highly industrialized cities. The state has also one of the highest ST population in the country, living in and around forest areas. Though came into being in year 2000, the States poverty rate has declined by 2 per cent per year during 1994-2002, however, 18.89 per cent households still live below the poverty line (BPL). The per capita income of the rural BPL families is Rs. 366.56 and that in case of urban families is Rs. 451.24 The present study focuses on corruption as perceived and experienced by people living below poverty line. The study collected a sample of 929 BPL Households of which 657 were from rural areas while 272 were residing in urban areas. These households were covered from towns and villages across four districts of the state including state capital Ranchi and three NREGS districts Dumka, Palamu and East Singhbhum. With the objective to provide good governance to the common citizens through the usage of ICT, the government of Jharkhand has set up e-Nagrik Seva Kendras. This service facilitates submission of application forms by the citizens for issue of certificates such as Caste, Birth, Death, Residential and Income. The State has also developed e-Nibandhan Software to automate the registration process in the District Sub-Registrar Office. The purpose of this software system is to provide a digital database relating to registration of documents and information for the district sub-registrar office and also make the information easily accessible to general public.

Although the government has taken initiatives leading to a more transparent service delivery system, the impact of such measures in benefiting the poor is debatable. In this backdrop, the study attempted to guage the perception and experience of the BPL households with the public service departments in the state. A majority (83 per cent) of BPL households in Jharkhand believed that the corruption in public offices was real and they had first hand knowledge or experience regarding the same. There was not much difference noticeable in the responses of BPL households from urban or rural locations.
Jharkhand
291
Variables Location Urban Rural Gender Male Female Education Illiterate Literate Less than primary Primary Secondary Graduate & above
Hear say more
Dont know/ Not sure
15 14 14 16 16 8 12 16 14 18
83 83 84 79 83 79 85 80 86 82
2 3 2 4 1 12 3 3 0 0
Nearly three-fourth of the BPL households opined that the level of corruption had increased in the last one year. Among the districts, as high as 83 per cent of the BPL households from Palamu for example thought that corruption has got worse. While seven per cent of the BPL households were of the opinion that the level of corruption had declined within the last one year in Jharkhand.
Increased
Remained same as before
Decreased
75 76 76 73 77 69 79 73 78 77
19 16 16 18 20 14 14 18 14 14
6 8 7 8 3 15 8 9 8 9
Irrespective of the educational status more than two-thirds of the BPL respondents perceived that the level of corruption has increased during the last one year. A little less than two-thirds (64 per cent) BPL households held the government officials responsible for corruption in public offices in Jharkahnd.
292 Table 3: Responsible for Corruption
Source Politician Government Official Citizens All of them
Urban 31 61 5 3
Rural 26 65 6 3
Total 28 64 6 3
More than one-fourth (28 per cent) of the BPL households in Jharkhand identified politicians to be responsible for corruption. Compared to other districts, in Palamu nearly one-third of the BPL households held politicians responsible for corruption. The proportion of respondents blaming politicians for corruption is higher in Jharkhand, reflecting poor governance and low opinion about the elected representatives. Panchayat elections have not been held for the last three years, further diluting the accountability of the politicians at the state level.
11.3 INTERACTION
WITH
PUBLIC SERVICES
Service BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking National Rural Employment Guarantee Scheme Forest Land Records & Registration Housing Police
Note:
Urban
Rural
Total
96 81 55 60 11 57 15 20 3
98 75 30 51 1 50 47 20 9 39 2
97 77 37 53 4 52 47 20 11 33 2
the sample households visiting police departments being less than 30, so this department has been excluded from further analysis.
BPL households are perceived to be more dependent on public services by the government. So it becomes relevant to gauge the extent of their interaction with various public services. This could be better understood by differentiating between basic services (which are required frequently) and need-based services (which are required only occasionally). Higher per centage of BPL households in Jharkhand reported to have interacted with Public Distribution System and hospital service during the last one year. Among the need based services the interaction in the banking service (52 per cent) and NREGS (47 per cent) was high during the last one year, compared to other services. Compared to other
Jharkhand
293
states, the interaction with Land Record and Police service is relatively low. Societal factors such as dependence on common property resources and inaccessibility of habitations may be responsible for this low level of contact with need-based services.
Multiple Visits
Service BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED
BPL Households
Reasons for 3 visits or more
30 18 10 37 38 32 50 62 37
New ration card Getting bed, New connection, faulty bill, electric supply New admission, application for scholarship Installation of hand pump Registration for job card, issuance of job card Open new account, getting pension money Allotment of house Caste certificate, land record
National Rural Employment Guarantee Scheme (NREGS) Banking Housing Land Record s & Registration
In order to avoid unnecessary delays and repeated visits in getting a work done in any of the government services, the citizens end up paying bribe. So this study investigated the reasons for repeated visits by BPL households to avail services. A relatively higher per centage of BPL households had to visit housing and banking services more than three times to get the work done. While in case of basic services 10 to 38 per cent BPL households made three or more visits, principally for Water Supply, School Education and PDS. More than two-thirds of BPL households interacting with basic services perceived that there is corruption in PDS, Water Supply and Hospital services. In case of need-based services, more than three-fourths of the BPL households interacting with the services agree that there is corruption in Housing service, Police service and Land Records & Registration services. These are the same three services for which interaction of BPL families in Jharkhand is significantly lower than other states, as noted earlier in this report.

More than three-fourth of the BPL households were of the opinion that corruption in Housing, PDS, Land Records & Registration and NREGS has increased. In case of banking service and school education, the per centage of respondents thinking that corruption has decreased during was comparatively high. Some improvement in the level of corruption has also been perceived for forest service, which is an important source of livelihood for ST communities.
Service BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED
There is Corruption
No corruption
80 69 47 39 71
3 4 9 7 6 7 10 3 3 6
16 26 41 53 15 16 64 7 18 54
National Rural Employment Guarantee Scheme 76 Banking 23 Housing Land Records & Registration Forest Service 88 75 37

Service BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking National Rural Employment Guarantee Scheme Forest Land Records & Registration Housing Police Service
Decreased
Same
Increased
7 10 17 32 3 44 7 26 6 5 5
21 30 43 37 32 36 27 43 25 19 32
72 60 40 31 65 20 66 31 69 76 64

Though the Jharkhand State government has a provision of grievance redressal through web sites for almost all the services, most of the BPL households were of the opinion that the measures for grievance redressal have ether deteriorated or have remained same with in the last one year. This could be due to low access of BPL households to Internet, and technological solutions are not substitutes for actual improvement in service delivery on the ground. The challenge is far greater in a state like Jharkhand, which started from a low level of administrative capacity and where access is difficult in the most remote areas. Only in case of the banking service and school education, more than one-third of the BPL households felt that the measures had improved.
Jharkhand
295
Service BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking National Rural Employment Guarantee Scheme Forest Land Records & Registration Housing Police
Improved
Same
Deteriorated
6 9 15 33 6 47 8 21 6 5 5
23 32 49 36 32 33 30 52 26 22 32
71 59 36 31 62 19 62 27 66 73 63
11.6 INCIDENCE
OF
CORRUPTION
Among the basic services, more than 1.7 per cent of households paid bribe to avail the services during the last one year. In case of school education though the per centage of BPL households paying bribe was quite low (0.2 per cent) however more than 11 per cent households used contact to get their work done. In case of need-based services the extent of people paying bribe or using influence was comparatively high. More than 15 per cent households paid bribe to avail services from Land Records & Registration service and housing service. As high as 10 per cent of the respondents used contact to avail serves in NREGS.
Service BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking National Rural Employment Guarantee Scheme (NREGS) Forest Land Records & Registration Housing
Paid Bribe
Used Contact
2.5 1.7 2.3 0.2 2.9 3.1 4.6 2.1 16.2 14.6
1.0 0.8 1.1 11.3 0.8 10.2 3.4 6.1 5.2
1.2 0.6 0.9 0.6 5.9 1.2 2.8 1.4 2.0 11.3
296

The BPL households also reported that they did not avail the service in housing (11 per cent) and water services (6 per cent) as they were asked to pay bribe. In case of both basic and need based services, the BPL households in Jharkhand have mainly paid bribe for availing the services for which they had made three or more visits.
Service BASIC Public Distribution System Hospital School Education Electricity Water Supply NEED-BASED Housing Land Records & Registration Forest National Rural Employment Guarantee Scheme Banking Allotment of plot/house Sanction or release of loan amount Mutation Caste certificate (Tehsil office) Income certificate Picking fuel wood Using forest land for construction Registration for job card; Issuance of job card Seek loan Getting the pension amount Opening new account For getting new ration card For Delivery In patient or getting bed For diagnostic services For Medicine Promotion from one class to another New connection Non-receipt of bill For getting water for irrigation purpose Reason for Paying Bribe
The initiatives such as e-nibandh and e-nagrik seva or nagrik sewa Kendra are in existence. Due to the lack of both physical and technological access, the BPL households are unable to avail these services. This underscores the point regarding putting in place adequate administrative machinery on the ground for better service delivery.

Service BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Housing Land Records & Registration Forest National Rural Employment Guarantee Scheme (NREGS)
Govt. Official
Agent/ Middlemen
39 100 75 100 100 73 87 67 55
43 12 11 13 33 20
17 13 13 25
Jharkhand
297
The study revealed that majority of the BPL households who had paid bribe paid it directly to the government officials. The figures reflect the impunity of government officials in services such as Hospital, School Education and Water Supply, where even middlemen are not involved. However, the latter is active in sectors such as PDS, Forest and NREGS. Recent reports of violence against NGO activists carrying out social audit for NREGS points to a strong nexus between government bureaucrats and middlemen. This needs to be dealt with immediately if the state is to achieve higher standards of service delivery.

In Jharkhand around 16 per cent of the BPL households who had interacted with various services reported to have paid bribe during the past one year for availing one or more of the 11 services. The amount estimated to be paid as bribe during the last one year by the households is Rs. 159 million. During the last one year, in availing one or more eleven services covered in the study, a BPL household in Jharkhand had paid on an average Rs. 540 as bribe.
OF
SERVICES
Based on respondents perception and experience, 11 services are categorized in to four levels of extent of corruption - alarming, very high, high and moderate. In Jharkhand, Health, PDS, Water Supply and Housing are found to be at very high level.
ALARMING VERY HIGH Health Public Distribution System (PDS) Water Supply Police Housing HIGH School Education National Rural Employment Guarantee Scheme (NREGS) MODERATE Electricity Banking Land Records & Registration Forest

Easy access to Officials: The officials across the services informed that most of the times the problems of common people are solved on the spot. The official in the Land Records & Registration services added that they allow people to directly interact with higher officials and have even put a display board informing the same. A bank official from West Singhbhum added that they have prohibited the agents or middlemen to enter the bank premises so that people, especially the poor, should directly interact with officials. The officials even feel that computers in their branches have helped solve lot of administrative grievances. Improving Infrastructure: The official in the school education informed that their department organizes a public meeting shiksha darbar on stipulated time at the block level for grievance
298
redressal. The water department has given phone numbers to their staff members where calls can be made directly. The officials in hospital services added that they are providing free medicines to BPL families and are starting new Primary Health Centres and Health Sub Centres to provided accessibility of health services to BPL families.
11.9 AWARENESS ABOUT RTI AND CITIZENS CHARTER

Departments /Services Public Distribution System Electricity Hospital Water supply Housing Banking Land Records & Registration Police Targeted schemes
No. of offices 8 7 8 5 7 8 8 4 3
Display of Citizens Charter 0 0 0 0 0 4 0 0 0
Display Board on RTI Act 6 0 1 1 5 0 4 0 2
Board Displaying Name of PIO 5 0 3 2 7 1 5 0 3
Availability of Complaint box 1 2 3 3 2 7 1 1 1
The study team visiting the state observed that except for banks, the Citizens Charter was not displayed in any of the services. However the RTI display board, the board displaying the name of the Public Information Officer (PIO) and the compliant boxes were available in some of the services.
Table 14: Awareness about RTI and Citizens Charter
Variables Overall Location Urban Rural Gender Male Female Age-Group 18-25 yrs 26-35 yrs 36-50 yrs
RTI 5 6 5 6 2 9 5 4
Citizens Charter 1.0 1.0 0.9 1.3 2.6 1.0 0.6
The awareness level regarding RTI was as low as 5 per cent among the BPL households. The awareness level among males and those in the age group 18 to 25 years was marginally higher. However the awareness level was slightly high among the BPL households from Dumka district (12
Jharkhand
299
per cent). None of the BPL households from urban location were aware about Citizens Charter although it has been in existence longer than RTI.
Source of Awareness
Newspaper played a major role in creating awareness about the RTI act in Jharkhand. Campaign and friends were the other two major sources of information about RTI.
Source Friends Newspaper Government Source Campaign TV
Urban 15 31 4 31 15
Rural 27 39 20 10 2
Overall 22 36 13 18 8
12. Karnataka
12.1 ABOUT
THE
SATE
In Karnataka, 25 per cent of population or about 13.88 million people are classified as Below Poverty Line (BPL) in 2004 -05 according to estimates as put forward by Planning Commission. The incidence of poverty is higher in urban areas (32.6 per cent) when compared to rural areas (20.8 per cent of people). The poverty line for monthly per capita per income in rural areas is Rs. 324.17 that is below the national average of Rs. 356.3 and in urban areas it is Rs. 599.66 which is significantly higher than the national average of Rs. 538.6. The per capita income (Rs. 21696) of this state is also higher than the all-India figure (Rs. 20,989).

There are differences in opinions and perceptions related to the daily interaction with various public service offices. It would therefore be interesting to understand the perception of BPL families about corrupt practices in the State.
Variables Overall Location Urban Rural Gender Male Female Education Illiterate Literate Less than primary Primary Secondary Graduate & Above
Hear say more 30 24.7 32 29.4 32.6 26.7 38.5 24.1 29.6 33.2 32.7
Had first hand experience 67.7 72.9 65.7 68.4 64.6 71.7 58.2 73.3 68.2 63.7 67.3
Dont know/ Not sure 2.3 2.4 2.3 2.2 2.9 1.6 3.3 2.6 2.2 3.1 -
Close to 30 per cent of BPL households covered in the survey thinks that corruption is only hear say. However, nearly two-thirds have accepted to having first hand knowledge of corruption. Urban BPL respondents reported having greater knowledge of corruption than their rural counterparts. It is also slightly higher for males, and for lower education categories.
Karnataka
301
Variables Overall Location Urban Rural Gender Male Female Education Illiterate Literate but did not go to school Less than primary Primary Secondary Graduate & Above
Increased 46.3 49.4 45.1 46.3 46.3 45.3 47.3 47.4 44.1 48 46.9
Same as before 40.2 37.5 41.2 39.4 41.7 40.3 39.6 43.1 41.3 37.2 42.9
Decreased 13.5 13.1 13.7 13.9 12 14.3 13.2 9.5 14.5 14.8 10.2
More than 80 per cent of BPL respondents think that corruption has either increased or remained same in the last one-year. Little over one-tenth of BPL households perceived that corruption has declined. Relatively higher percentage of urban BPL respondents think that corruption has increased in the last one year.
Source Government officer Politician Businessman All of them Citizen
Urban 33 24 8 28 6
Rural 31 21 6 33 7
Overall 32 22 7 32 7
Nearly one-third of all BPL respondents think that government officers are responsible for corruption, while a little less than a quarter held politicians responsible. However, nearly one-third of all BPL respondents think that a bureaucrat politician businessman nexus operated in the system, and held all three of them responsible for corrupt practices in public services.
12.3 INTERACTION
WITH
PUBLIC SERVICES
To capture the extent to which BPL households interact with various public services, they can be differentiated between basic services (which are required on daily basis) from need-based services (which are required only occasionally). Around 90 per cent of the BPL households covered in the study have claimed to interact with Health & PDS services in the last one year. Nearly 80 per cent also interacted with electricity service. This also indicates that these services are accessible to BPL households. The high interaction
302
could also be due to certain policies of the state government like free power to farmers and BPL families. On the other hand, just over half of BPL households have interacted with School Education and only 23 per cent have interacted with Water Supply service.
Service BASIC Hospital Public Distribution System Electricity School Education Water Supply NEED-BASED Banking Land Records & Registration National Rural Employment Guarantee Scheme Housing Police Forest
Urban
Rural
Overall
89.6 88.8 88.4 55.8 45.8 48.2 45.0 31.1 16.7 4.0
90.8 89 71.7 54.0 14.4 55.9 53.4 60.6 35.8 19.7 17.3
90.5 89 76.3 54.5 23.0 53.8 51.1 60.6 34.5 18.9 13.6
Among need base services, except Police and Forest, the interaction in last one year has been reasonably high, ranging between 34 per cent for Housing to 64 per cent for NREGS. There is significant difference in the extent of interaction between urban and rural BPL households in few services like Electricity and Water Supply where urban households have interacted more than rural. This may point to a lack of provision of these basic services in the rural areas.
Multiple Visits
Our earlier corruption studies have shown that people tend to pay bribe to avoid making repeated visits to an outlet to get a particular work done. In view of this it would be interesting to study the extent and reason why BPL respondents have to make repeated visits to get their work done. The data shows that in case of basic services, between 6 and 26 per cent of BPL respondents had to make 3 or more visits. In case of need based services, 17 -46 per cent of the BPL respondents had to make 3 or more visits.
Services BASIC Water Supply Hospital
BPL Households
26 15
Maintenance of hand pump, supply of water tankers As in patients

Table Contd...
Karnataka
Table Contd...
303
School Education Electricity Public Distribution System NEED-BASED Housing Banking Land Records & Registration Police National Rural Employment Guarantee Scheme
9 8 6 46 45 36 30 17
New admission, Application for scholarship Faulty meter, non-receipt of bills, new connection New ration card, addition of members Allotment of house / plot, release of housing loan, transfer of ownership New account, seek loan, defer loan instalments Obtaining records, land survey, paying tax, mutation For filing a complaint, remove name from witness Registration for job card, issuance of job card

Services BASIC Public Distribution System Water Supply Electricity Hospital School Education NEED-BASED Housing Police Land Records & Registration Forest Banking
There is Corruption
No corruption
48.2 45.5 39.3 38.7 12.8 87.3 86.7 85.9 44.8 18.3
13 18.5 15.9 44 16.8 6.0 3.5 3.8 10.3 11.2 11.8
31.4 29.9 41.6 14.4 44.1 4.7 5.2 6.6 23.4 36.8 50.9
National Rural Employment Guarantee Scheme 64.4
Overall, like in other states, the perception about basic services is better than need based services. The range, however, is very large. In the case of basic services, 13 to 48 per cent of those interacting with think the service is corrupt. As far as perception about corruption is concerned, the best service is Education while the worst is PDS. Since the interaction with PDS is as high as 90 per cent in both urban and rural areas, corruption in PDS affects substantially larger numbers of BPL households. Accountability mechanisms should be put in place to check the adverse perception regarding PDS among BPL households. Among the need-based services, the perception about the Police, Housing and Land Records services is extremely poor. More than 85 per cent of those who are interacting with these services perceive them to be corrupt. Among the rest of the services, Banking is perceived to be least corrupt.
304 Table 7: Level of Corruption
Services BASIC School Education Electricity Public Distribution System Water Supply Hospital NEED-BASED Banking Forest National Rural Employment Guarantee Scheme Land Records & Registration Police Housing
Decreased
Same
Increased
73.1 50.5 42.3 35.5 19.8 76.7 37.6 26.3 7.7 7.5 7.3
17.6 28.2 33.7 37.9 70.6 10.1 5.4 37.2 37.0 37.0 34.5
9.2 21.3 24.5 26.5 9.7 13.2 12.0 36.6 55.3 55.5 58.2
In case of basic services, only one-fifth of BPL respondents think corruption has declined in health service whereas almost three-fourths thinks that corruption in the education service has declined in the last one year. In case of need-based services, higher percentage (55-58) think that corruption has actually increased in last one year in the cases of Land Records, Police and Housing. More then threefourths of the respondents think that corruption has decreased in Bank services. The perception of an increase in corruption in Land Records and Registration service is surprising since Karnataka is one of the first states to have implemented computerization in land records. This may indicate that procedural factors may also play a role in abetting corrupt practices even in services where information technology has been introduced to improve efficiency in service delivery.

More than one-fourth of the respondents think that the grievance redressal mechanism has improved in the last one year in Education, Electricity and Banking. Deterioration has been observed by 12 to 18 per cent of BPL households in Housing, Police, Land Records and NREGS among the needbased services and in PDS among the basic services.
Services BASIC School Education Electricity Hospital Public Distribution System Water Supply
Improved
Same
Deteriorated
26.9 26.6 5.4 11.8 13.7
67.1 64.4 85.5 77.5 79.1
6.0 9.0 9.0 10.7 7.1

Table Contd...
Karnataka
Table Contd...
305
NEED-BASED Banking Land Records & Registration Police National Rural Employment Guarantee Scheme Housing Forest 26.9 2.8 3.5 9.1 2.2 12.8 61.5 85.3 82.1 79.1 80.4 80.8 8.9 12.0 14.5 11.9 17.4 6.4
12.6 INCIDENCE
OF
CORRUPTION
Services BASIC Hospital Water Supply Electricity Public Distribution System School Education NEED-BASED Police Land Records & Registration Housing National Rural Employment Guarantee Scheme Forest Service Banking
Paid Bribe
Use Contact
22 9 7 5 2 64 64 51 26 10 8
1.0 4.0 1.0 1.0 0.8 6.4 9.8 1.4 7.5 6.4 1.0
0.5 3.8 0.4 0.2 0.6 0.6 7.3 19.9 9.0 3.2 2.4
Overall, in case of basic service, upto 22 per cent of households accepted paying bribe or using influence or both to avail services. In the case of need-based services, however, there was a significant difference in the extent of people paying bribe. The per centage of people paying bribe ranges between 8 per cent for Banking, 64 per cent for Police and Land Records and just over half for Housing. The proportion of BPL respondents using contacts to get their work done is the highest for Land Records, NREGS, Police and Forest.

Service BASIC School Education Electricity Hospital New admission Faulty Meter New Connection Bill payment As in-patient As out-patient For delivery For operation
Table Contd...
Reason of Paying Bribe
306
Table Contd...
Public Distribution System Water Supply NEED-BASED Banking Housing Land Records & Registration Forest National Rural Employment Guarantee Scheme Police
Preparation of new card To take monthly ration Deletion & addition of family members Maintenance of hand pumpRegularization of unauthorized connectionBill payment Seek loan Allotment of plot / house Release of house loans Income & Caste certificate Obtain land records Mutation Land survey For saplings To pick fuel wood Wage payment Registration for job card Make a complaint Remove name from witness As an accused
Both in cases of basic and need-based services, the purposes are closely related to the fundamental areas of service delivery. Most often, bribes are paid at the first point of service delivery being selected as a beneficiary. Better information dissemination has to be undertaken on the part of both the government and civil society to address this issue.

Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Land Records & Registration Police National Rural Employment Guarantee Scheme Housing Forest
Govt. Official 100.0 89.6 97.2 74.4 89.5 90.2 98.0 98.2 86.7 82.1 92.3
Agent/ Middlemen 6.3 2.2 9.3 10.5 4.9 2.4 1.8 7.2 7.2 7.7
Local Representative 4.2 0.6 4.7 6.0
In Karnataka, the middlemen menace seems to be continuing. In certain services like Water Supply, PDS, Forest, NREGS, Housing and Electricity, a majority of people pay bribe through middlemen. The extent of paying bribe through local representatives is comparatively less. In Education, there is no routing of bribe through any third party; it is directly paid to the government officials.
Karnataka
307

In Karnataka, around 67 per cent of the BPL households reportedly paid bribe in the last one year for availing these basic and need-based services. The amount of bribe paid in the last one year by these BPL households in the 11 services covered is estimated to be Rs. 650 million. On an average, each BPL household has paid bribe amounting to Rs. 389.
12.7 RELATIVE POSITIONING OF SERVICES

ALARMING Land National Rural Employment Guarantee Scheme (NREGS) Housing VERY HIGH HIGH Health Banking Police MODERATE Electricity Public Distribution System (PDS) School Education Water Supply Forest

According to the officials of different services, accountability of the officials and transparency in the system will lead to betterment in the quality of the services. They also confirmed that general people especially BPL households do not get prompt services in most of the outlets. Problems: Due to problems in documentation, procedural delays and long queues, people face difficulties in getting new connection, getting payments or job cards. Many applications have been received under RTI act. People coming for transferring APL to BPL card and for getting selected as beneficiary are common phenomena. Pro-poor Initiatives: Procedures for getting a loan has been made easier. This is reflected in the positive perception of the Banking service as being relatively corruption-free. Some benefits are provided like free saplings, toilets for BPL, lease of forestland for 2-3 years. Merit scholarship, free notebook & pen, free computer classes are provided for the BPL students. There are special facilities for no-frill account and micro finance. Extension of Corruption: In Karnataka, the officials have not received any written complaints against corruption in last three months. Measures to curb corruption: Some outlets of these 11 services have been computerized. Regular meetings and proper investigation have been conducted. Surprise verifications of records are also conducted. The contact number of PIOs have been displayed to help common people. Lokayukta officer is recruited specially to keep a check on corrupt practices. Regular training programs are also organized for the officials. Some officials reported the quality of staff is very low. The officials, in almost all the services were of the opinion that staff strength is not adequate which leads to slow service delivery and many a times encourages corruption. They also hold the opinion that people should report against the corrupt officials through channels available to them.
308

Sustained media campaigns and ground level initiatives by civil society groups have resulted in higher awareness about the RTI Act among the BPL households. In Karnataka, around 13 per cent of BPL people are aware of RTI while only 1 per cent know about Citizens Charter. Awareness about RTI Act is relatively higher when compared to many other states where the awareness is as low as 5-6 per cent. The awareness is relatively higher among the urban, male and younger BPL respondents. Urban, female and older BPL population is unaware about citizens charter.
Table 14: RTI and Citizens Charters
RTI 12.8 18.7 10.5 13.8 8.6 13.4 13.0 14.3 7.6
Citizens Charter 1.0 1.4 1.2 2.3 0.9 0.7

Services
No. of Offices 9 7 7 6 6 7 6 8
Source of Awareness
Table 15: Source of Awareness About RTI
Source Newspaper Friends TV Government Source
Urban 44 40 12 2
Rural 42.7 38.2 18.0 1.1
Overall 43.2 38.8 15.8 1.4
Karnataka
309
Formal media like newspapers and TV have played a key role in creating awareness about the RTI Act. This was supported by informal sources or word of mouth from friends. Less than 2 per cent could attribute their awareness to Government sources. Newspaper and friends act as major sources for many BPL households in urban areas while TV is more influential in rural areas.
13. Kerala
13.1 ABOUT
THE
STATE
Kerala is often held up as a model of development for other states. Although its per capita income is not the highest, it occupies the first position in India in terms of the Human Development Index; some of its health and educational indicators are at par with those of the developed countries. According to the Census 2001, the number of households in the state is 6.72 million, out of which 14 per cent live below poverty line (BPL). According to the Planning Commission, the cut off point for poverty line (Rs. per capita per month) for rural population of the state is Rs. 430 and for urban population is Rs.559. Some of the important schemes that are in operation in the state for economic upliftment of poor people are SGSY, NREGS, Provision of Urban Amenities in Rural Areas (PURA), IAY, Haryali, Credit-cum-Subsidy Housing Scheme, SGRY, Integrated Watershed Development Programme etc. Two districts (Palakkad and Wayanad) were included from the state during the first phase of NREGS. In the second phase, two more districts (Idukki and Kasargod) were added. The present study focuses on corruption as perceived and experienced by BPL people. This study is based on a sample of 951 BPL Households (679 rural; 272 urban- from eight towns and 27 villages of four districts, namely state capital Thiruvananthapuram and three NREGS district (Palakkad, Wayanad and Kasargod). The present corruption study revealed that out of the total BPL households in the state, nearly 22 per cent has not got BPL card. Location-wise, nearly 27 per cent of the BPL income group households in urban areas of the state had not got BPL card while the corresponding figure in the rural area is 20 per cent.

In Kerala, in the last one year, a little more than one third of the BPL households had first hand experience of existence of corruption in the public services. Gender wise, a higher per cent of male in BPL households had first hand experience of existence of corruption in public services, possibly because they interact with outside home activities.
Kerala
311
Variables Location Urban Rural Gender Male Female Education Illiterate Literate informally Less than primary Primary Secondary Graduate & Above
Hear say more
Dont know /Not sure
60 62 57 67 73 66 55 62 60 58
38 36 41 31 25 31 42 37 38 38
2 2 2 2 3 3 3 1 2 4
A majority (62 per cent) of the BPL household in the state felt that in the last one year the level of corruption in the government services had gone up, 29 per cent felt that the level of corruption remained same and only eight per cent opined that it had come down.
Increased
Same as before
Decreased
59 63 65 60 70 60 77 66 59 49
32 28 28 30 23 26 8 27 33 40
9 8 8 9 6 14 8 6 8 11
Of the districts covered in the study, 72 per cent of the BPL households in Kasargod district felt that corruption in the services had increased against . less than 60 per cent in the other districts felt that corruption had increased in the last one year.
312

Source Politician Government official Businessman All of them Citizen
Urban 26 44 0.4 13 15
Rural 20 47 1 16 14
Overall 22 46 1 15 15
Nearly half of the BPL households held government officers and functionaries responsible for the corruption in public services in the state. According to 22 per cent of the BPL households, politicians were responsible for corruption, while 15 per cent opined that citizens were responsible for the corruption.
13.3 INTERACTION
WITH
PUBLIC SERVICES
Services BASIC Public Distribution System Health Electricity School Education Water NEED-BASED Banking National Rural Employment Guarantee Scheme Police Land Records & Registration Housing Forest
Urban
Rural
Overall
97 92 88 38 17 74 5 21 60 15 3
98 94 85 40 9 75 16 14 62 10 10
97 93 86 39 12 75 13 16 61 12 8
The highest level of interaction among basic services was in PDS, Health and Electricity, shown their dependence on these public services. Only 39 per cent interacted with School education and 12 per cent with Water Supply services in the last one-year. Among need-based services, highest levels of interaction of the BPL households in the state were with Banking (75per cent) and Land Records & Registration (61 per cent). The rate of interaction of all other services is relatively low. There is very low level of interaction of BPL households with NREGS, Police, Housing and Forest.
Kerala
313
Multiple Visits
As a part of good governance, the government service delivery should be hassle free in such a way that citizens need not to visit again and again for the same work. Earlier corruption studies have shown that many a times the service seekers pay bribe to avoid repeat visits in the process of getting a particular work attended to. In view of this, the present study tried to identify the proportion of the BPL households who had to make repeat visits in the last one-year and the specific purposes The data shows that between 24 and 35 per cent of the BPL households in Kerala had to make repeat visit (three or more times) to avail basic services. In comparison, between 97 and 78 per cent of the respondents had to make three or more repeat visits when availing need-based services. Repeat visits may be one of the reasons for low rate of interaction of BPL families with need-based services such as NREGS, Police and Housing.
BPL Households
Reasons for 3 Visits or more for same Purpose
30
Non receipt of bill; Faulty meter and installation of meter; To reduce/adjust excess bill; New Connection; and Regular supply As in patient/for getting bed Issue of new ration card /surrender/address change; Permission of release of extra quantity during festivals. Admission; Application for scholarship; Promotion from one class to another and Issuance/attestation of certificate Installation/Maintenance of hand pump; Water meter installation; Supply of water tankers and Repair of water pipeIrrigation water Open new account ; Withdrawal; and Seek loan Defer loan instalment Allotment of plot / house; Such on release of house loan; Construction of toilets and Transfer of ownership Agricultural land on lease from panchayat ; Obtain land records; Purchasing stamp paper; Sale / purchase of land property; Paying tax For getting selected as beneficiary/registration for job contractIssuance of job card and Payment of unemployment allowances.
Health Service Public Distribution System (PDS)
19 33
School Education
24
Water Supply
35
NEED-BASED Banking Housing 83 78
Land Records & Registration
97
84
88
For filing a complaintAs an accused; Remove name from witness; Verification (passport/job)
314

Barring School Education and Banking, at least half of the BPL respondents felt that corruption was prevalent in the services. As high as 77 per cent of BPL household felt that Police service was most corrupt followed by Land Records & Registration (69 per cent) and Housing (61 per cent).
There is Corruption
No Corruption
59 50 56 13 54 39 56 61 69 53 77
25 38 29 62 36 37 32 30 21 36 16
9 8 7 19 8 16 6 5 7 5 2
For almost all the services (except School Education and Health) covered in the study, a majority of the BPL households felt that corruption had increased in the last one year. The proportion of the households, who felt that the corruption had come down in the last one year was very low, not exceeding one-fourth and that too only in two services i.e. School Education and Banking.
Services BASIC Electricity Health Public Distribution System School Education Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police
Decreased
Same
Increased
14 14 13 25 15 26 11 7 9 5 4
38 67 34 63 38 43 37 38 34 52 27
48 19 53 13 48 31 52 55 57 43 69
Kerala
315
As high as 69 per cent of the BPL households felt that among the need-based services corruption in Police service had increased in the last one year. It is followed by Land Records & Registration (57 per cent), Housing (55 per cent), Forest (52 per cent). Among the basic services, corruption has increased maximum (53 per cent) in PDS, followed by Electricity and Water Supply (48 per cent each). In terms of perception, however, nearly 43 per cent of the respondents felt that corruption had increased in NREGS.

Services BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking Police Land Records & Registration Housing Forest National Rural Employment Guarantee scheme (NREGS)
Improved
Same
Deteriorated
17.8 21.1 15.5 29.2 14.7 29.8 6.5 16.3 11.0 11.0 7.3
44.8 53.3 47.4 64.9 48.6 48.3 42.2 41.3 39.4 43.8 55.3
37.4 25.7 37.1 5.9 36.7 21.9 51.3 42.5 49.5 45.2 37.4
In Kerala, the proportion of BPL households who felt that the deterioration in grievance redressal in the services (except education) was higher for almost all the services than those who felt that it has improved. Maximum deterioration in grievance redressal has been in Police Services. The BPL households who felt that there is no chance in grievance redressal in the services varied from service to service ranging from 39.4 per cent (in Housing) to 65 per cent (in School Eduation).
13.6 INCIDENCE
OF
CORRUPTION
Services BASIC Electricity Health Public Distribution System School Education Water Supply
Paid Bribe
Used Contact
11.3 5.8 4.0 1.9 5.5
6.6 2.7 3.7 3.5 11.9
1.2 0.8 0.9

Table Contd...
316
Table Contd...
NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police 1.5 4.1 21.1 12.6 0.8 35.7 6.9 11.0 11.0 12.6 10.6 14.9 0.7 1.4 0.9 5.7 0.6
In both basic and need based services, the BPL households paid bribes or used contacts to get their works done. The proportion of BPL families who paid bribe in the last one year was maximum (35.7 per cent) in Police, followed by Housing (21.1 per cent) and Land Records & Registration (12.6 per cent). Among basic services, 11 per cent of the BPL households paid bribes in Electricity department, followed by 6 per cent in Health and 5.5 per cent in Water Supply services. Though very negligible proportion of the BPL households paid bribe to avail NREGS comparatively a higher per cent (10.6 per cent) of the BPL households used a contact so that their work could be attended. Nearly six per cent of the households did not use these service because they could not pay bribe.

Households paid bribe for various reasons including to avoid harassment and repeated visits in both basic and need based public services. The households paid bribe in basic services even for reasons like taking monthly ration in PDS service and in water supply service for maintenance of hand pump.
Service BASIC Electricity Bill payment; Non receipt of bill; To reduce/adjust excess bill; Faulty meter; Meter instillation; New Connection; Agricultural connection; Industrial connection and Regular supply As in patient/for getting bed ; As out patient; For diagnostic services; For blood transfusion; For operationFor medicine Delivery (ANC/PNC) and For medical certificate/Attestation Issue of new ration card; Surrender / change in address on ration card; Change of ration shop; Deletion & addition of family members in ration card; Permission for release of extra quantity during festivals To take monthly ration Admission; Low attendance of child/promotion from one class to another and Issuance of certificate Installation/Maintenance of hand pump; Regularization of unauthorized connection; Water meter installation
Table Contd...
Reason for Paying Bribe
Health
Public Distribution System (PDS)
Kerala
Table Contd...
317
NEED-BASED Banking Housing Land Records & Registration Withdrawal savings; Seek loan; Defer loan instalment and Pension Allotment of plot / house; Release of house loan; Construction of toilets and Transfer of ownership Agricultural land on lease from panchayat; Obtain land records; Purchase of stamp paper; Sale /purchase of land property; Paying tax Land survey; Income certificate and Caste certificate For filing a complaint; As an accused; Removal as witness; Passport verification; Verification for job; Violation of traffic law and Character certificate
Police
Similarly, in need based services, the BPL households paid bribe even for purchasing stamp paper for land registration, and filing of complaint with the Police. In fact, these households are fundamentally entitled to avail these services hassle free.

Service BASIC Electricity Health
Agent/ middlemen
85 96 70 100 67 64 100 52 81 100
10 4 24 17 9 9 8
5 6 17 27 39 12
Public Distribution System (PDS) School Education Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS)
Mostly, bribes are paid directly to government officials or functionaries to get their work attended to. However, some paid bribe to through middlemen or a local representative.

It is estimated that out of the total BPL households (939000) in Kerala, 27 per cent paid bribe to avail one or more services covered in the study in the last one year to get their work attended to. On an average, a BPL household paid Rs. 423 to one or the other service in the last one year as bribe. Overall, total bribe involved in availing eleven services in the year is estimated to be Rs. 98 million.
318

OF
SERVICES
The Table 12 shows service wise extent of corruption in Kerala state. None of the services covered in the study is in alarming level of corruption. However, services like electricity, Health, PDS, Police, School Education and NREGS fall in the range of very high corruption.
Electricity Health Public Distribution System (PDS) School Education National Rural Employment Guarantee Scheme (NREGS)
Water Supply Housing Forest
Banking Land Records & Registration Police

Senior officials of the services covered in the study were contacted to understand their point of views about the corruption in their services and also to know the measures taken by their respective services to improve governance. The study also tried to assess the transparency, working environment at the service delivery points and strength and weaknesses of these services. Officials of almost all the services claimed that Public Information Officers (PIOs) have been put in place. They also mentioned about the availability of complaint book/box in the office. Apart from this, there is Anti Corruption Bureau (ACB) is telephone number and instructions to encourage the service seekers to complain at the given number if they face or become victim of any type of harassment or corruption. The phone number of ACB is written at important places, service delivery points and outside the concerned offices. In the state, the PDS officials mentioned that they conduct regular monitoring and checking at the service delivery points. They also mentioned about complaint book at service delivery points to register citizen grievance. The officials of the services like Land Records & Registration, Police, NREGS and Health also mentioned that the use of information technology is becoming a tool to provide prompt service through better training of personnel. The officials of the hospital service mentioned that they rrganize health camps particularly for poor people. The service has increased the number of ambulances, free food, special wards and free blood test facility for BPL in the government hospitals of the state.

Research team visited the service delivery points to assess whether the things like availability of Citizens Charter, complaint register/box and board displaying name of PIO that are supposed to be provided in the premises were available or not. The table below explains the availability of these things in the service delivery points. The table below shows the extent of availability of these things in the premises.
Kerala
319
Services
No. of Offices 7 5 8 3 7 7 6 4 2
Display of Citizens Charter 1 0 0 3 3 4 0 2 1
Display Board on RTI Act 1 1 4 3 4 6 2 2 1
Board Displaying Name of PIO 1 3 5 3 5 7 2 3 1
Availability of Complaint box 4 5 6 2 7 6 4 3 2
Banking Electricity Hospital Housing Land Records & Registration Public Distribution System (PDS) Police Water supply Target Scheme
Table 14: Extent of Awareness About RTI and Citizens Charter

RTI 11 15 9 13 8 11 10 10 14
Nearly 11 per cent of the BPL household reported that they had heard about RTI Act. The awareness about RTI was comparatively higher in urban areas than that of rural areas of the state. Gender-wise, awareness about the Act was higher among male in comparison to female. Only two per cent of the household respondents were aware about Citizens Charter.
Source of Awareness
Nearly 68 per cent of those BPL households who had heard about the RTI Act did so from news media (newspaper and radio/television). Another 13 per cent heard about it from friends.
320 Table 15: Source of Awareness
Urban 10 20 20 39 12
Rural 15 4 31 44 2
Overall 13 10 26 42 5
14. Madhya Pradesh

14.1 ABOUT
THE
STATE
According to the Census 2001, the total number households in Madhya Pradesh is 1.09 million, around 40 per cent of them live below the poverty line (BPL). The cut off point (Rs. per capita per month) for rural BPL population in Madhya Pradesh is Rs. 328 and for urban population is Rs. 570. In terms of per capita income and Human Development Index, Madhya Pradesh is lagging behind many of the Indian states. The rank of Madhya Pradesh was 12th among major states in the Human Development Index-combined (source HDR 2001). Eighteen districts were included from the state during the first phase of NREGS implementation in the country. Thirteen more districts were added in the second phase. Madhya Pradesh has a large number of schemes aimed at the BPL population. These include Rajiv Gandhi Watershed Management Mission, Self Employment Schemes, Wage Employment Schemes, Externally Aided Schemes, schemes for Rural Roads and under District Rural Development Agency. Madhya Pradesh was also the first state to implement the Education Guarantee Scheme in the mid1990s, which has served as a model for the nation-wide program of elementary education known as the Sarva Shiksha Abhiyan (SSA). The present study focuses on corruption as perceived by people living below poverty line. To this end, the study collected a sample of 930 BPL households (622 rural; 308 urban) from ten towns and 27 villages of five districts of Madhya Pradesh i.e. state capital (Bhopal) and four NREGS districts (Sidhi, Balaghat, Jhabua and Shivpuri). The present corruption study revealed that out of the total BPL households in Madhya Pradesh, around 41 per cent did not possess BPL card. Location-wise, 33 per cent of these BPL households are urban areas and 44 per cent in rural areas.
ABOUT
CORRUPTION
More than two-thirds of the BPL households in Madhya Pradesh felt that corruption in the services was real. Comparatively, higher per cent of the male member of BPL households as well as those with higher level of education felt that the corruption in the services was real, District-wise, comparatively higher per centage (75 per cent) of BPL households in Shivpuri and Sidhi felt that corruption in the services was real. In rest of the districts, also it was around 65 per cent.
322 Table 1: Corruption: Hear Say or Real?
Hear say more
Dont know /Not sure
32 26 26 36 34 26 27 32 14
64 71 72 60 62 71 71 63 85 100
5 2 3 4 4 3 3 4 1
On the question of whether there has been any change in the level of corruption, majority (53 per cent) of the BPL households in Madhya Pradesh perceived that it had gone up while 45 per cent perceived that it was the same as before. In all the districts of Madhya Pradesh, the responses of the BPL households on the issue was on similar lines.
Increased
Same as before
Decreased
43.5 56.9 54.7 45.1 49.6 52.0 59.8 46.1 57.0 68.2
53.9 40.8 42.8 53.0 48.1 44.4 38.1 52.9 40.7 22.7
2.6 1.8 2.2 1.4 1.9 2.3 2.1 1.0 2.3 9.1
In Madhya Pradesh, a majority of the BPL households held government officials responsible for corruption in public services. However, nearly one-fourth of the BPL households put the blame on politicians.
Madhya Pradesh
323
Urban 22 54 8 16
Rural 25 51 4 20
Overall 24 52 5 19
14.3 INTERACTION
WITH
PUBLIC SERVICES
Among basic services highest level of interaction was found with the Health and PDS services in the last one year. Nearly all the BPL households surveyed had interacted with public health facilities. On the other hand, less than one in ten households surveyed had interacted with the Water Supply service. Since many parts of the state is semi-arid, it is necessary for the government tofocus on the area of Water Supply urgently. In Madhya Pradesh, around 96 per cent of the villages were electrified by end of year 2007. This may explain the comparatively higher level of interaction of BPL households with the Electricity service both in urban as well as in rural areas.
Services BASIC Health Public Distribution System Electricity School Education Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Urban
Rural
Overall
94 88 58 47 14 25 6 24 11
87 93 49 38 3 27 21 5 33 37 16
90 92 52 41 7 27 21 6 30 37 14
Among need-based services, the highest (37 per cent) level of interaction of rural BPL households was with NREGS (37 per cent). Given that 31 out of 48 districts are covered under NREGS, the interaction of BPL families with this need-based program is very low. Land Records & Registration and Banking services were also availed by around one-third of the households. Being a poor state, one would expect Housing to be a major service of interaction, which is surprisingly not the case.
Multiple Visits
As a part of good governance, the services available at the delivery points should be smooth, and hassle free so that citizens need not to make repeated visits to avail the services they are entitled to. Earlier corruption studies have shown that many a times service seekers visit delivery points pay
324
bribes to avoid repeat visits for getting a particular work attended to. In view of this, the present study tried to identify the proportion of the BPL households who had to make repeat visits in the last one-year and their specific purposes. The data shows that as high as 48 per cent of BPL households made three or more visits in Health service to get admitted/get bed in hospital, followed by 30 per cent for Water Supply related problems. In other basic services like Electricity and PDS, 17 and 14 per cent of BPL households, respectively, had to visit three or more times in the last one year to get their work attended to. Between 15 and 32 per cent of the BPL households had to make repeat visit (three or more time) availaing the need based services. However, apart from Health service, for the instances of multiple visits is comparatively low in Madhya Pradesh.
Service BASIC Electricity
BPL Households
17
Non receipt of bill To reduce /adjust excess bill Faulty meter Meter installation New /Restoration of connection Agricultural connection Regular supply As in-patient / for getting bed Issue of new ration card Surrender ration card/change in address on ration card Change of ration shop Deletion & addition of family members in ration card Permission for release of extra quantity during festivals. Admission Application for scholarship Low attendance To check the quality of mid-day meal Installation/maintenance of hand pumps Regularization of unauthorized water connection; Repair of water pipe Irrigation water Open new accountSeek loan Defer loan instalment Allotment of plot/house Sanction/release of housing loan Construction of toilets Agricultural land on lease from panchayat Obtaining land records Sale/purchase of land property Mutation Land survey Caste certificate Income certificate For getting selected as beneficiary Registration for job contract Issuance of job contract card Payment of unemployment allowances For filing a complaint As an accused Remove name from witness
Health Service Public Distribution System (PDS)
48 14
3 30
25
16

For each of the basic services like Health, PDS and Water Supply, nearly half of the BPL households perceived that there was corruption. Around one-third of the BPL households felt that corruption existed in Electricity and School Education services too.
Madhya Pradesh
325
Services BASIC Electricity Health Public Distribution System School Education Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police Service
There is Corruption
No Corruption
35 48 48 31 48 22 54 58 72 45 66
46 41 41 44 25 63 32 37 23 47 24
16 10 11 21 25 15 11 6 4 6 8
However, corruption is perceived to be higher in the need-based services like Land Records & Registration (72 per cent), Police (66 per cent), Housing (58 per cent) and Forest service (54 per cent). A considerable proportion of the BPL households were not sure on the issue whether corruption existed in the services or not. It may be mentioned here that, in many cases, investigators felt that the respondents were reluctant to tell the truth about the existence of corruption in the services. The respondents were apprehensive that disclosure of truth may lead to further investigation/probe and they may be dragged into the process. That may be one of the reasons that many of the respondents might have apparently showed ignorance about the existence of corruption in the services.
Services BASIC School Education Electricity Health Public Distribution System (PDS) Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police
Decreased
Same
Increased
6 5 5 3 10 9 2 5 2
69 72 60 64 69 79 70 67 57 59 46
25 23 35 33 21 13 28 33 42 36 52
326
For Health and PDS, around one-third of the BPL households felt that the corruption had increased in the last one year. For the rest of the basic services, their proportion is around one-fourth. Among need based services, higher per cent of the BPL households felt that level of corruption had increased in the last one year for Police (52 per cent) and Land Records & Registration(42 per cent), NREGS (36 per cent) and Housing (33 per cent) services. For rest of the basic services, between 13 and 28 per cent BPL household felt that level of corruption in these services had gone up in the past one year. The data shows that a very high per cent of BPL households for all the services, both basic and need-based, mentioned that the level of corruption in the services remained same in the last oneyear. The responses of the BPL households suggest that no concrete steps or initiatives were taken by the state government to check corruption from the services.

The proportion of BPL households in Madhya Pradesh who felt that grievance redressal in the services had improved was very low for each of the services. For most of the services, it has deteriorated. Generally, BPL households felt that grievance redressal mechanism of the services remained same in the last one-year.
Services BASIC Public Distribution System (PDS) Hospital Electricity School Education Water Supply NEED-BASED Banking Police Land Records & Registration Housing Forest National Rural Employment Guarantee scheme (NREGS)
Improved
Same
Deteriorated
5.5 5.5 4.3 8.4 9.8 8.5 1.5 1.1 1.9 3.1
65.4 64.7 75.3 68.9 75.4 77.6 51.9 62.5 71.2 75.4 63.6
29.1 29.8 20.4 22.7 14.8 13.8 46.6 36.5 26.9 24.6 33.3
14.6 INCIDENCE
OF
CORRUPTION
Among basic services, nearly 28 per cent of the BPL households had to pay bribe to avail Water Supply services, followed by Health service (17 per cent). It may be mentioned here that this is despite a number of health schemes like Deendayal Mobile Health Clinic, Deendayal Antodya Upchaar Yojna, Janani Suraksha Yojna, Janani Express Yojna and Dhanwantri Yojna that have been in operation for the benefit of poor families. In other basic services, bribes were paid by 6.6 per cent to 2.4 per cent BPL families.
Madhya Pradesh
327
Among need-based services, half of the BPL households had to pay bribe for police and around 40 per cent in Land Records & Registration service in the last one year.
Services BASIC Electricity Health Public Distribution System School Education Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Police
Paid Bribe
Used Contact
6.6 17.0 6.0 2.4 27.9 8.5 30.8 9.6 40.1 7.9 51.2
9.5 5.6 5.7 5.0 16.4 5.3 19.2 32.7 25.3 12.3 26.0
6.2 6.1 5.2 1.8 3.3 6.5 3.8 15.4 5.4 10.1 3.1
In all services, contacts played an important role in accessing the benefits. In some of the services like Housing, Land Records & Registration and Police, 25-33 per cent of the BPL households had to use a contact to get their work attended to. Similarly, in all the services, 15 per cent and less of the BPL households did not use the service in the last one-year because they could not pay bribe. The proportion of such BPL households was highest in housing service (15.4 per cent), followed by NREGS (10.1per cent).

Services BASIC Electricity Bill payment ; Non receipt of bill ; To reduce/adjust excess bill Faulty meter; Meter installation; New connection and Agricultural connection As in patient/ For getting bed For diagnostic services/ blood/operation/medicine medical certificate/ attestation; Delivery(ANC/ PNC) Public Distribution System (PDS) Issue of new ration card; Deletion & addition of family members in ration card; Permission for release of extra quantity during festivals/ months; To take monthly ration. Admission; Low attendance of child; Promotion from one class to another; Allotment of hostelIssuance of certificate and Application for scholarship Installation/Maintenance of hand pump; Regularization of unauthorized water connection; Repair of water pipe and Irrigation water
Table Contd...
Health
School Education
Water Supply
328
Table Contd...
NEED-BASED Banking Housing Land Records & Registration
Open new account Seek loan Allotment of plot/house Construction of toilet Agricultural land on lease from panchayat; Obtain land records; Purchasing stamp paper; Sale/purchase of land property Mutation; Paying tax and Land survey For getting selected as beneficiary/ registration for job. For filing a complaint; As an accused; Remove name from witness; Verification for job; Violation of traffic law and Character certificate
The BPL households paid bribe to the services for various reasons. The responses suggest that the BPL households had to pay bribe in the services for even small nature of work or even for routine work. For example, the BPL households had pay bribe in Electricity service for payment of bill, in PDS service for change of beneficiary names and to take monthly ration. In NREGS service, they paid bribe to get selected as a beneficiary/to get job card.
Route of Bribe
Service BASIC Electricity Health
Agent/ middlemen
94 100 75 100 94 43 89 100 33 40 92
6.0 8.0 6.0 57.0 9.0 3.1 11.0 20.0 10.0
18 3 56 40
Public Distribution System (PDS) School Education Water supply NEED-BASED Banking Land Records & Registration Police National Rural Employment Guarantee Scheme (NREGS) Housing Forest
In most of the services, the bribe was paid mostly to officials/ functionaries directly. However, in Banking, the bribe was paid to agent/middlemen. In NREGS and Housing, 56 and 40 per cent BPL households respectively paid bribe to local representatives. It may be mentioned here that these two schemes are implemented through Panchayat and the recommendation of the Panchayat Representatives (Pradhan/sarpanch) to become beneficiary under the schemes is essential to some extent.
Madhya Pradesh
329

It is estimated that out of the total BPL households 4.4 million in Madhya Pradesh, 38 per cent of them paid bribe to one or more services covered in the study in the last one year to get their work attended to. On an average, a BPL household paid Rs. 610 to one or the other service provider in the last one year as bribe. Overall, total bribe involved in availing eleven services in the year is estimated to be Rs. 1.028 billion.
14.7 RELATIVE POSITIONING SERVICES

In Madhya Pradesh, the extent of corruption of all the services (except- Health) was very high or of alarming level.
Forest Housing National Rural Employment Guarantee Scheme (NREGS) Land Records & Registration Public Distribution System (PDS) Banking
Electricity School Education Water supply Police
Health

Senior officials/PIOs of the services covered in the study were contacted to understand their point of views about the corruption prevalent in their services and also to know about the measures taken to check corruption and to provide better service to the people. It also tried to assess the transparency in the services, working environment of the service delivery points and strength and weaknesses of the services. The views of the officials are as follows. Officials of all the services mentioned that the Citizens Charter is available at the delivery points. It was stated that there were designated PIOs appointed in the respective services, as well as the availability of complaint book/register for general public. According to them, senior officials of the concerned service routinely check the complaint book/register and immediate action is taken if there is any genuine complaint in the register. The officials of the departments like Development Office, PDS, and housing mentioned that Committees at Panchayat level have been formed to monitor the works being done under different development schemes. The Committee formed for PDS monitors the functioning of the fair price shops in Panchayat. The officials also mentioned that meetings are organized with the villagers to provide them information on different developmental schemes and the process of getting benefit of the schemes. The officials of the SGSY mentioned that Jan Kalyan Camp is organized at Panchayat level to make the people aware of the scheme and the process to avail the services of the scheme.
330
The officials of the Land Administration mentioned that computers have been installed in the office to provide prompt service. The vigilance officer monitors the activities to check corruption in the department. Despite various measures have been taken to check the corruption in the services, however, the responses of the BPL households on the issue suggest that corruption in the services was common. The local dailies of the state also highlight the corruption and irregularities in various departments.

Research team visited to the service delivery points and assessed whether the things like availability of Citizens Charter, complaint register/box and board displaying name of PIO that are supposed to be there in the premises were available or not. The table below explains the availability of these things in the service delivery points. The table shows that in most of the cases things were available in the premises.
Services No. of Display of Offices Citizens Charter 4 7 8 9 10 6 4 7 Display Board on RTI Act 1 5 6 9 10 4 4 7 Board Displaying Name of PIO 1 6 4 8 9 4 3 7 Availability of Complaint box 4 7 7 9 10 5 4 7
Banking 7 Electricity 9 Health 9 Housing 9 Land Records & Registration 10 Public Distribution System (PDS) 6 Police 5 Water supply 8
In Madhya Pradesh, awareness on RTI and Citizens Charter was moderate in comparison to other states. However, the awareness was mostly in urban BPL population. Similarly, awareness was comparatively less among female BPL, while it was higher among young people. The awareness about these was comparatively more among BPL youth.
Table 14: Extent of Awareness about RTI and Citizens Charter
RTI 5 10 2 6 1 7 5 5 4
Madhya Pradesh
331
Source of Awareness
Urban 33 8 24 18 12
Rural 19 14 33 10 24
Overall 26 11 29 14 18
A majority (43 per cent) of those BPL households who had heard about the two years old RTI Act, knew it from news media (newspaper and television). One-fourth heard about it from friends. Comparatively higher per centage of the BPL households in urban areas heard about RTI Act from friends.
15. Maharashtra
15.1 ABOUT
THE
STATE
According to the Census 2001, the total number households in Maharashtra is 19.5 million, around 32 per cent of them live below the poverty line. The cut off point for poverty line (Rs. per capita per month) for rural population in Maharashtra is Rs. 328 and for urban population is Rs. 570 In terms of Human Development Index, Maharashtra ranks 4th among major Indian states. During the first phase of implementation of NREGS, twelve districts were included from the state. In the second phase, six more districts were added. The present study focuses on corruption as perceived and experienced by people living below poverty line. The study is based on a sample of 904 BPL Households (630 rural; 274 urban). These households were covered from ten towns and 27 villages of five districts of the state, i.e., state capital (Mumbai) and four NREGS districts (Ahmad Nagar, Nanded, Bhandara and Nandurbar). The present corruption study revealed that out of the total BPL households in Maharashtra, around 38 per cent do not possess BPL card.

Hear say more
Dont know /Not sure
11 23 19 22 26 11 19 14 21 11
81 73 77 71 66 80 76 83 76 85
8 4 4 7 8 9 5 3 3 4
Three-fourths of the BPL households in the state perceived that corruption in public services was real. Only twenty per cent of the BPL households in the state felt that corruption in public services was hear say more.
Maharashtra
333
Comparatively higher proportion (more than 80 per cent) of BPL household in Yawatmal and Nanded perceived that corruption in services was real. While in other districts (Ahmadnagar, Nandurbar and Mumbai) 65-70 per cent households felt that corruption in services was prevalent. Similarly higher percentage of urban BPL households felt that corruption in public services was real. Among different educational level of BPL respondents, highest percentage of illiterate BPL perceived that corruption was real.
Increased
Same as before
Decreased
30 35 37 26 26 24 32 35 39 53
61 47 49 58 52 57 57 56 47 34
8 15 13 13 18 7 10 8 14 13
Around one-third BPL households in the state felt that in the last one year the level of corruption in public offices had increased. A higher per centage (51 per cent) of BPL households in the state perceived that in the past one year the level of corruption in the services had remained same. Only 13 per cent BPL households felt that in the last one-year the level of corruption in the services decreased. Comparatively higher per cent of male BPL perceived that in the last one year the level of corruption in the services had increased. In comparison to Ahmad Nagar, Nanded and Mumbai higher per cent (40 per cent) of BPL households in Yawatmal and Nanded felt that corruption in the services in the last one year had increased.
Urban 20 28 23 23
Rural 18 35 16 28
Overall 19 33 19 27
Around one-third of the BPL households held government officials or functionaries responsible for the corruption. Equal proportion of respondents felt that politicians and also citizens are to blame for corruption in public services.
334

WITH
15.3 INTERACTION
PUBLIC SERVICES
Services BASIC Public Distribution System Health School Education Electricity Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Urban
Rural
Overall
84 83 61 54 22 36 8 14 15
91 74 34 39 15 35 32 9 14 48 7
89 77 42 44 17 35 32 9 14 48 9
Among basic services, the level of interaction of BPL households is high except for Water Supply. PDS and Health services were utilized by a high majority of BPL households in the state in the last one-year. More than 40 per cent BPL household interacted with Electricity (44 per cent) and Education (44 per cent) services. With the exception of PDS, the level of interaction with basic services was higher in the urban than in the rural areas. Among need-based services, comparatively a high proportion of BPL households interacted with Banking service including post office. In rural areas, 48 and 32 per cent BPL households interacted with NREGS and forest services, respectively, in the last one-year.
Multiple Visits
As a part of good governance, the services available in the delivery points should be smooth, such that citizens need not to make repeated visits to avail the service. Earlier corruption studies of CMS have shown that many a times the visitors to the service delivery points pay bribe to avoid repeat visits in the process of getting a particular work attended to. In view of this the present study tried to identify the proportion of the BPL households who had to make repeat visits in the last one year.
BPL Households
22
Non-receipt of bill To reduce /adjust excess bill Faulty meter Meter installation New connection Temporary connection As in-patient / for getting bed
Table Contd...
Health Service
11
Maharashtra
Table Contd...
335
25
Preparation of new ration card Surrender ration card/ change in address on ration card Change of ration shop Deletion & addition of family members in ration card Permission for release of extra quantity during festivals/months. New admission Application for scholarship Seek promotion from one class to another Low attendance of ward Issue of certificate Not allowed to appear in exams Installation/maintenance of hand pumps Regularization of unauthorized water connection Water meter installation Supply of water tankers Irrigation water Open new account Seek loan Defer loan instalment Allotment of plot/house Sanction/release of housing loan Construction of toilets Agricultural land on lease from panchayat Obtaining land records Purchasing stamp paper Sale/purchase of land property Mutation Paying tax Land survey Income certificate Caste certificate For getting selected as beneficiary/ registration for job contract Issuance of job contract card Payment of unemployment allowances For filing a complaint As an accused Remove name from witness Passport verification Verification for job Character certificate
School Education
18
Water Supply
22
57
63
The table above shows that 11-25 per cent households had to make repeat visit for basic services. Among need-based services, between 43 and 70 per cent BPL households had to make repeat visit to get their work attended to.

The per cent of BPL households who felt that corruption did exist was very high for almost all services. For Banking, Land Records & Registration, and Police services, 80-89 per cent BPL households perceived that there was corruption. Similarly, 70 or more per cent of the BPL households felt that corruption did exist in services like Water Supply, PDS and Housing. For rest of the services covered in the study, nearly 50 per cent or more believed that there was a corruption. Except Health and School Education, there were very few respondents who were unaware of the level of corruption either positive or negative.
Services BASIC Electricity Health
There is Corruption
No Corruption
64 50
5 24
28 25
Table Contd...
336
Table Contd...
Public Distribution System (PDS) School Education Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
72 49 70 80 53 73 82 55 89
4 23 5 2 4 4 4 7 4
23 26 22 17 41 23 9 37 4
A greater proportion of BPL respondents think that corruption has either increased over the past one year or has remained the same. Perceptible improvement can be seen only for Forest and NREGS. It may be mentioned that despite a majority of BPL households in Maharashtra perceived that corruption in the services did exist and level of corruption in the services had gone up in the past one year, only few in number (i.e. only five) in the last one year complained against the corruption in the services.
Services BASIC School Education Electricity Health Public Distribution System (PDS) Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Decreased
Same
Increased
27 26 26 23 23 29 41 18 10 36 6
43 30 33 30 26 20 32 28 30 30 33
30 44 42 48 51 51 27 55 60 34 61

A majority of the BPL households covered in the study perceived that grievance redressal in the services remained same in the last one year. However, for the services like Police, Housing and Land Record & Registration, between 27 and 40 per cent of BPL households perceived that grievance redressal had deteriorated in the last one year.
Maharashtra
337
Services BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking Police Land Records & Registration Housing Forest National Rural Employment Guarantee scheme
Improved
Same
Deteriorated
21.0 24.6 20.5 25.1 23.4 24.7 4.8 11.7 18.8 38.2 27.8
60.6 61.9 65.1 63.3 66.2 58.5 68.7 46.1 43.8 54.9 59.6
18.4 13.5 14.4 11.6 10.4 16.8 26.5 42.2 37.5 6.9 12.6
15.6 INCIDENCE
OF
CORRUPTION
Paid Bribe
Used Contact
4.6 5.3 3.0 0.3 1.3 0.6 1.0 2.5 39.8 14.6 35.8
0.5 3.7 2.4 1.1 8.3 2.5 2.9 1.3 2.3 3.0 2.4
3.0 0.1 0.1 0.5 6.4 0.9 2.0 2.5 7.0 7.9 4.9
Among basic services, only between around one amd five per cent paid bribe. The use of contacts in public services is also pretty low. In the services like Health and Water Supply, nearly 4 and 8 per cent respectively used a contact to get their work attended to. Between 3 per cent and 6 per cent of BPL households could not benefit from Electricity and Water Supply because they could not pay bribe. In some of the need-based services like Land Records & Registration and Police, nearly 40 per cent of the BPL households paid bribe to get the work attended to. In these services 5-7 per cent
338
did not take the service because they could not pay bribe. Also in NREGS a high per cent of BPL households paid bribe or did not take the service because they could not pay bribe.

Service BASIC Electricity Health Public Distribution System (PDS) Bill payment ; Non receipt of bill; To reduce/adjust excess bill; Faulty meter; Meter installation and New connection As in-patient/ For getting bed; As out patient; For diagnostic service; For blood; For operation and For medicine Preparation of new ration card; Change of ration shop; Deletion & addition of family members in ration card; Application for license to sell kerosene, oil or authorization and To take monthly ration Application for scholarship Installation/Maintenance of hand pump; Regularization of unauthorized water connection; Supply of water tankers; Repair of water pipe and Irrigation water Open new account and Seek loan Allotment of plot/house; Sanction/release of housing loan; Construction of toilets and Transfer of ownership Obtain land records; Purchasing stamp paper; Sale/purchase of land property; Land surveyIncome certificate and Caste certificate For getting selected as beneficiary/ registration for job and Issuance of job card For filing a complaint; Remove name from witness; Passport verification; Verification for job; Character certificate and For avoid challan Reason for Paying Bribe
NEED-BASED Banking Housing Land Records & Registration National Rural Employment Guarantee scheme Police
The BPL households paid bribe to the services for various reasons. The responses suggest that the BPL households had to pay bribe for all the purposes they visited to the services. BPL households had pay bribe in electricity service for payment of bill, in PDS service for getting their ration shop changed or to take monthly ration. In NREGS service they paid bribe to become beneficiary of the scheme.
Route of Bribe
Service BASIC Electricity Health Public Distribution System School Education Water supply NEED-BASED
Agent/ middlemen
61 62 71 100 50
33 22 29
6 16 50
Table Contd...
Maharashtra
Table Contd...
339
Banking Land Records & Registration Police National Rural Employment Guarantee Scheme Housing Forest
100 96 96 57 100 100
4 4 7
36
Bribe was paid mostly to officials/functionaries of the services. However, in some of the services like Electricity, Health, PDS, Water Supply, NREGS agent /middlemen or local representative were also channels of bribe. As high as 50 per cent of the BPL households in NREGS paid bribe to a local representatives to get their work done.

It is estimated that out of the total BPL households (6175000) in Maharashtra, 18.4 per cent of the households paid bribe to one or more services covered in the study in the last one year to get their work attended to. On an average a BPL household paid Rs. 230 to one or other service in the last one year as bribe. Overall, total bribe involved in availing eleven services in the year is estimated to be Rs. 260.53 billion.
OF
SERVICES
Despite a high percentage of BPL households in the state perceived that corruption in the services was real. Level of corruption of almost half of the services covered in the study was moderate. Nearly half of the services were in the range of high level of corruption. Only in Land Records & Registration, corruption level was categorized as very high.
Health
Land National Rural Employment Guarantee Scheme (NREGS)
Electricity Water Supply Banking Police
Public Distribution System (PDS) School Education Housing Forest

Senior officials/PIOs of the services covered in the study were contacted to understand their point of views about the corruption in the services and also to know about the measures taken to check corruption and to provide better service to the people. It also tried to assess the transparency in the services, working environment of the service delivery points and strength and weaknesses of the services. The views of the officials are as follows. More than fifty per cent officials of almost all the services told that Citizens Charter was available
340
in their respective offices. According to almost all the officials, complaint register was available. The officials also mentioned that people register their complaint in the complaint book and the senior officials of the concerned department check the complaint book regularly. The officials also mentioned that telephone number of Anti-Corruption Bureau had been displayed in the offices. Some of officials mentioned that to check corruption in NREGS, applicants were encouraged to directly approach to higher officials like Tehsildar, if someone faced any problem. In PDS service, the officials mentioned that the dealers of the fair price shops were given instructions to write details of the stocks of the shop on board and open the shop regularly and on time. Violation of the same by the dealer would make it liable for cancellation of the license of the shop. Official of the Housing department mentioned that they adopted a method of selection of beneficiary by turn that it left no scope of corruption in selection of beneficiary. According to the officials, several services had been included in Suvidha Kendra (single window clearance service) to provide prompt service. Electricity service had toll free number for the convenience of the customer to complain for any fault or defect in power supply.

Research team visited to the service delivery points and assessed whether Citizens Charter, complaint register/box and board displaying name of PIO that are supposed to be there in the office premises were available or not. The table below shows the availability of these things at the service delivery points.
Services
Banking Electricity Health Housing Land Records & Registration Public Distribution System Police Water supply
Maharashtra
341
RTI 6.9 8.0 6.3 8.6 2.9 9.1 5.9 6.9 5.5
Citizen Charter 5.5 1.1 7.5 6.5 3.2 8.6 4.2 3.6 8.7
In Maharashtra, nearly 7 and 6 per cent BPL households were aware RTI Act and Citizens Charter, respectively. Surprisingly, awareness about Citizens Charter was higher among rural BPL in comparison to urban BPL.
Source of Awareness
Urban 61 12 18 9
Rural 25 6 41 16 12
Overall 41 9 30 9 10
Around 40 per cent of those BPL households who had heard about the two years old RTI Act, did so from friends. Comparatively, higher per cent of the BPL households in urban areas heard about RTI Act from friends. For 30 per cent BPL households in the state, the source of information about RTI was media (TV/Radio).
16. North-East States

16.1 ABOUT
THE
STATE
About 18 per cent of their population (about 2.31 million) the northeastern states is living Below Poverty Line. The incidence of poverty is significantly higher in urban areas (22.3 per cent of people are classified as BPL) when compared to rural areas (3.3 per cent of people). The per capita poverty line for a rural BPL household is Rs. 378.84 while it is Rs.387.64, for the urban areas. Both are little above the national average. The seven states in the North-east, namely Arunachal Pradesh, Mizoram, Manipur, Meghalaya, Nagaland, Tripura and Sikkim, are linguistically and culturally distinct from the other states of India. A large number of inhabitants speak Tibeto-Burmese languages and have cultural similarities with South-East Asia and Tibet. The states in the region is officially recognized as special category states. Due to the special constitutional provisions, historical background as well as geographical location, the central government has been trying to integrate the Northeast with the national economy, as the region has long remained isolated from the rest of the country. Since these seven North-eastern states have many common characteristics, they have been combined as one unit and then studied in this survey. According to the survey, around 40 per cent (26.5 per cent urban and 13.6 per cent rural) of the eligible BPL households did not have BPL cards in these states.

Hear say more Location Urban Rural Gender Male Female Education Illiterate Literate Less than primary Primary Secondary Graduate & Above
Dont know /Not sure
44 51 50 45 39 32 47 56 50 52
48 41 44 42 47 53 47 37 44 42
7 8 6 13 15 15 6 8 6 6
North-East States
343
While 49 per cent of surveyed BPL households in the North-East said that corruption in public services was mere hear say, only a slightly lesser per centage of households (43 per cent) felt it was real, since they had had first hand experience or knowledge of the same.
Variables Location Urban Rural Gender Male Female Education Illiterate Literate but did not go to school Less than primary Primary Secondary Graduate & Above
Increased
Same as before
Decreased
39 34 34 39 30 24 29 32 43 44
48 51 52 45 53 61 57 53 44 40
9 11 11 8 5 7 9 12 12 14
On the other hand, 85 per cent of BPL households in the region felt that the level of corruption had either increased or remained the same during the last one year. Only 11 per cent of BPL households felt that corruption had actually declined.
Urban 39 34 4 11 11
Rural 36 34 6 10 14
Overall 36 34 5 10 13
Majority of the BPL households in the North-east either held politicians or government officers responsible for corruption. While 36 per cent respondents felt that politicians indulged in corrupt practices, 34 per cent believed it was government officers who were responsible for the malpractice. However, 13 per cent of households also felt that citizens themselves were responsible for corruption in public services.
16.3 INTERACTION
WITH
PUBLIC SERVICES
BPL households are greatly dependent on public services provided by Government institutions and agencies. Therefore, it would be interesting to capture the extent to which BPL households are interacting with various public services in the North-eastern states. It is surprising to see that as compared to BPL households in other states of India, a much lesser percentage of households in the North-east region of the country interact with public services, especially basic services.
344
55 per cent and 63 per cent of BPL households interacted with the Hospital and PDS service s, respectively, in the last one year. Even though BPL households need to visit government hospitals due to lack of alternative medical care facilities and have to visit PDS shops regularly to procure ration, the frequency of interaction with these basic services was much less amongst households in the North-east as compared to those in other states of India. This is despite the fact that in North-eastern states like Arunachal Pradesh, the state government has made efforts to increase efficiency and performance of public services.
Services BASIC Public Distribution System Hospital Services Electricity School Education Water Supply Service NEED-BASED Banking Service National Rural Employment Guarantee Scheme Police Land Records & Registration Service Housing Service Forest Service
Urban
Rural
Overall
61 58 45 25 28 33 9 6 12 10 11
64 54 31 22 14 23 17 9 8 7 14
63 55 35 23 18 26 15 8 9 8 13
The Government of Arunachal Pradesh had approved the PPP project, on a pilot basis, for primary healthcare services, which are delivered through Primary Health Centres (PHC) in the state. It was proposed that one PHC in each of the 16 districts of the state would be handed over to a reputed NGO/Voluntary Agency/Non-commercial Hospital for providing clinical and preventive health services, implementing the National Rural Health Mission and other National Health/Family Welfare Programs, related IEC activities, and for promoting community-based disaster preparedness measures. Since need-based services are not required as frequently as basic services, the survey showed that households interaction with them in the last one year has been low as well.
Multiple Visits
Our survey showed that some BPL households in the North-east had to end up making more than three visits in the last one year to basic as well as need-based services. It may be because of earlier inquiries regarding their work being delayed, dismissed or ignored by staff of respective services, that these households were compelled to make repeated visits to get their work done. The data shows that in case of basic services, 22 to 32 per cent of BPL respondents had to make 3 or more visits in the last one year. On the other hand, although interaction with need-based services is intermittent, 26-45 per cent of BPL households ended up making repeated visits to these services.
North-East States
345
Services BASIC Public Distribution System Hospital Services Electricity School Education Water Supply Service NEED-BASED Banking Service National Rural Employment Guarantee Scheme Police Land Records & Registration Housing Service
BPL Households
22 27 26 28 32
Preparation of new ration card ; Surrender ration card/change in address on ration card As In-patient/for getting bed Faulty meter; Non-receipt of bill New admission; Issue of certificate Installation/ maintenance of hand pumps; Irrigation water Open new account; Seek loan For getting selected as beneficiary; Issuance of jobcard For filing a complaint; Character certificate Sale/purchase of land property; Mutation Allotment of plot/house; Construction of toilets
45 26 32 39 36

Amongst all services, Police, Land Record and Housing are considered to be most corrupt by 77 per cent, 63 per cent and 59 per cent of surveyed BPL households respectively. However, it should be noted that BPL households have had the least frequent interaction with these services in the last one year. Some households also felt that corruption did not exist in public services in the North-east. The highest per centage of BPL households agreeing with the same was seen in the School Education service (30 per cent), followed by the Banking service (25 per cent).
Table 6: Perception about Corruption in the Service
Service BASIC Public Distribution System Hospital Services Electricity School Education Water Supply Service NEED-BASED Banking Service National Rural Employment Guarantee Scheme Police
There is Corruption
No Corruption
43 36 45 28 52 33 39 77 63 59 48
27 31 31 30 28 32 36 09 27 24 28
22 15 13 30 10 25 09 08 05 09 13
Land Records & Registration Service Housing Service Forest Service
346
However, it is evident that more anti-corruption initiatives need to be undertaken in the Northeast and on-going initiatives need to be intensified, since a sizable majority of respondents believes that corruption has either remained the same or increased in all public services (basic as well as need-based) in the last one year. Among basic services, 88 per cent of the households each felt that corruption had either increased or remained unchanged in the Water Supply and Electricity services in the last one year.
Services BASIC Public Distribution System Hospital Services Electricity School Education Water Supply Service NEED-BASED Banking Service National Rural Employment Guarantee Scheme Police Land Records & Registration Service Forest Service Housing Service
Decreased
Same
Increased
19 18 12 27 13 31 9 9 7 12 6
55 56 60 57 54 52 63 36 60 69 68
26 26 28 16 34 17 27 55 33 20 26
In case of need-based services, the highest per centage of households saying that corruption had either gone up or remained the same, was seen in the Housing service (94 per cent), followed by the Land Record service (93 per cent). Relatively fewer percentage of BPL households on the other hand opined that corruption had declined in the last one year. Banking and School Education saw the highest per centage of households (31 per cent and 27 per cent, respectively) saying that level of corruption had come down in the services in the last one year.

On grievance redressal, in case of basic as well as need-based services, a significant majority of BPL households said that the situation had either remained the same or deteriorated further in the last one year. The Land Record and Housing services saw the highest per centage of households (95 per cent and 94 per cent, respectively) saying that grievance redressal situation had either remained unchanged or deteriorated further.
North-East States
347
Service BASIC Public Distribution System Hospital Services Electricity School Education Water Supply Service NEED-BASED Banking Service National Rural Employment Guarantee Scheme Police Land Records & Registration Service Forest Service Housing Service
Improved
Same
Deteriorated
13 17 13 27 13 31 6 7 5 10 7
60 60 66 59 58 56 69 47 66 70 68
27 23 21 14 29 13 24 46 29 20 26
Incidentally, as mentioned before, these two services also saw the highest per centage of households saying that corruption had either, shot up or remained the same in the past year.
16.6 INCIDENCE
OF
CORRUPTION
The survey showed that in case of basic services, 10-20 per cent of BPL households paid bribe or used contact in the last one year in order to get their work done. However, Meghalaya was an exception to this case, as a significantly higher per centage of BPL households in the state, 44-61 per cent paid bribe or used contact to avail the various basic services. In case of need-based services, the per centage of BPL households paying bribes and using contact varied greatly from 8-44 per cent. It was the Police service in which the highest percentage of BPL households (44 per cent) paid bribe in the last one year. Even in case of basic services, Meghalaya was an exception, as a comparatively higher per centage of BPL households in the state, (50-81 per cent) paid bribe or used contact to avail most of the needbased services, barring Banking and NREGS.
Service BASIC Public Distribution System Hospital Services Electricity School Education Water Supply Service
Paid Bribe
Used Contact
6 12 15 6 13
5 8 5 4 6
2 2 2 1 2
Table Contd...
348
Table Contd...
NEED-BASED Banking Service National Rural Employment Guarantee Scheme Police Land Records & Registration Forest Service Housing Service 5 11 31 24 10 10 3 10 13 8 5 7 3 4 6 3 3 8
On the other hand, the survey revealed that some BPL households could not avail services, since they were unable to pay bribe. This percentage was seen to be highest in the Housing service, where around 8 per cent of BPL households were deprived of services because they could not pay bribe.

In the PDS service, bribes are paid for preparing a new ration card, whereas in the Hospital service, people pay extra money for getting a bed in the hospital or for availing diagnostic services. In the School Education service, the bribes are paid for getting certificates issued or while seeking promotion of the child from one class to another. Among the need-based services, extra cash is paid to NREGS service for ensuring selection as a beneficiary, while bribes in the Banking service are paid while seeking a loan.
Service BASIC Public Distribution System Electricity Hospital service School Education Water Supply NEED-BASED Banking National Rural Employment Guarantee Scheme Police Land Records & Registration Forest Housing Seek loan; New open account or getting selected as beneficiary; Issuance of a job card Wage payment For filing a complaint; Character certificate Income certificate; Sale/purchase of land property To pick fuel woods; Forest land for farming Allotment of plot/house; Construction of toilets For getting selected as beneficiary; To take monthly ration New Connection; Faulty meter and Non receipt of bill As In patient/for getting bed; For diagnostic service and For medicine Issuance of certificate and Promotion to another class Installation/ Maintenance of hand pumps; Repair of water pipe; Regularization of unauthorized connection Reason for Paying Bribe
In case of all basic as well as need-based services, barring NREGS, a large majority of BPL households paid bribe primarily to government service functionaries. The survey revealed that in the Police and School Education service in the North-east, as high as 92 per cent and 88 per cent of the bribe was being paid to these officials.
North-East States
349
Although majority of households in most states paid bribe to government officials, households in Tripura were an exception. Only 17 per cent and 20 per cent of BPL households from the state paid bribe to government service functionaries in the PDS and Housing services, respectively.
Service BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking National Rural Employment Guarantee Scheme Police
Agent/ middlemen
75 84 77 88 86 66 27 92 66 81 70
13 16 22 12 15 34 5 8 30 19 30
12 72 4
Land Records & Registration Forest Housing
On the other hand, some households also paid bribe to middlemen and agents to help get their work done. For example, 34 per cent and 30 per cent of BPL households paid bribe to middlemen, to avail Banking and Housing services, respectivety. Almost none of the BPL households paid bribe to local representatives except in case of the NREGS, PDS and Land Record service. Only in the case of NREGS, the majority of respondents preferred to bribe local representatives, rather than government officials or middlemen.

Out of the nearly 436, 000 BPL households in the North-eastern states of India, around 24 per cent reportedly paid bribe in the last one year in one or more of the 11 services covered in the study. The amount, which was paid by these poor households in last one year, is estimated to be around Rs 40.1 million. This means that on an average, a BPL household in the North-east paid Rs 379 as bribe.
OF
SERVICES

Hospital
Public distribution System (PDS)
Banking Electricity Land Record & Registration National Rural Employment Guarantee Scheme (NREGS) Police Water Supply
School Education Forest Housing
350
16.8 SERVICE PROVIDERS PERCEPTION

Problems faced by BPL households Service providers in the North-east said their respective departments received complaints from BPL households about not getting food grains on time, about shortage of medicines, delay in issuance of ration cards, delay in selection as beneficiary under NREGS and problems related to irrigation water as well as opening up of bank accounts. Reasons for unsatisfactory service delivery Service providers agreed that BPL households were unable to get all services promptly and fully due to various reasons. Some said that due to geographical location and topography of the North-eastern region. Transportation has proved to be a hurdle and households were unable to receive benefits of governmental schemes. A few felt that lack of awareness was the reason behind peoples inability to fully avail benefits of public services, and suggested better delivery of information. Schemes implemented - To enhance efficiency of public services, some initiatives have been taken in each of the seven North-eastern states. Most of these states have adopted e-Governance measures in a bid to accelerate ICT infusion into government functioning. For example, the state of Tripura has prepared Rs. 1.8 million e-Governance Action Plan, for setting up cost effective ICT infrastructure for different layers of administration and quick deployment of a few prioritized applications for major state government services.
Service providers said that in Meghalaya, possibility of implementing those e-governance applications, which directly benefit citizens, was being examined. Monitoring implementation of development programs in rural areas by using remote sensing technology, such as satellite imagery, and using GPS type of system to provide weather forecasts, up-to-date market value information to rural agricultural masses, was also being done. On the other hand, Arunachal Pradeshs National Informatics Centre (NIC) has developed monthly expenditure software for the General Hospital of one of the districts, in a bid to usher in transparency in procedures and check the malpractice of corruption. The software was developed to generate monthly reports on revenues earned from diagnostic tests as well as reports generated head-wise for expenditures like salary, stationery purchased, etc. In Mizoram, steps have been taken to increase efficiency of service providers and enable better service delivery. A plan to establish an e-governance training centre in the state has been developed and the project targets to train 18,000 governments employees within a span of 5 years. Additionally in Tripura, 29 Community Information Centres (CICs) have been established and are functional since August 2002. Each CIC is well equipped with computers, VSAT, TV, Web camera, printers, UPS etc. CICs have been imparting IT training programs for school students, staff of the Block Development offices, elected representatives of 3-tier Panchayat Raj Institutions and common people in rural areas. Services being offered by CICs include computer awareness training, e-mail/ Internet, access to government services (G2C) like status of different government services, exam results, farmers tips, tender notices, job advertisements, educational notifications and so on. The state has also developed web enabled software, which provides advance booking facility for different types of diagnostic tests and specialist consultation from a state level referral
North-East States
351
hospital located at Agartala. Booking is provided to rural patients through Block level Community Information Centres and private Kiosk in Tripura. The Application software is designed and developed by NIC-Tripura and hosted on state level web server. Steps to further improve service delivery However, service providers said that in order to further improve service delivery particularly to poor people, schemes had to be devised as per the need of these people and implemented efficiently. They also cited transportation facilities in an area, which needed improvement. The officials said that proper implementation and monitoring of procedures, transparency and accountability of officials, setting up of vigilance/inspection committees, spreading greater awareness and improving salary structure, incentives of officials were other measures that needed to be adopted in order to curb corruption further and improve service delivery in the North-east.

Services
Bank Electricity Hospital Housing Land Records & Registration Public Distribution System Police Water Supply
Table 14: Awareness About RTI & Citizens Charters

RTI 11 11 11 10 13 12 12 9 7
352
In the North-east, while 11 per cent of surveyed BPL households were aware of the RTI Act, awareness about Citizens Charter was present amongst only 3 per cent of the households. A slightly higher percentage of females (13 per cent) showed awareness about the RTI as compared to males (10 per cent). Younger respondents, in the age group of 18-35 years, were relatively more aware of the RTI than their older counterparts.
16.10 SOURCE OF AWARENESS

Source Friends Government source TV Radio Newspaper Campaign
Urban 10 8 34 7 35 6
Rural 8 7 25 11 44 5
Overall 9 7 27 10 41 5
Majority of the BPL households felt that newspapers helped in spreading awareness about the RTI Act. Many others cited another form of mediathe TVas the source of awareness. Only 7 per cent of respondents felt that the government helped in generating awareness about RTI, while only 9 per cent credited interactions with friends to be the reason for greater awareness.
17. Orissa
17.1 ABOUT
THE
STATE
According to the poverty estimates of the Expert Group of Planning Commission for 2004-05, 46.4 per cent of the population in Orissa lives below the poverty line. This is well above one and a half times of the all India average of 27.5 per cent and is one of the highest among states in India. The proportion of BPL population is higher in rural areas (46.8 per cent) compared to urban areas (44.3 per cent). The present study revealed that 20 per cent of eligible households did not have BPL cards. This Study covered a total 920 BPL households from the rural as well as urban areas across four districts in Orissa, i.e. Khurda, Gajapati, Koraput and Nuapada. The BPL population heavily depends on the government for the delivery of essential services. Under the Targeted Public Distribution System (TPDS), separate ration cards are issued to BPL as well as the Above Poverty Line (APL) families. Keeping in view the low purchasing power in some of the tribal areas, the Government of Orissa has further subsidized the price of food grains to provide 16 kg of rice per month at Rs 4.75 per kg. As per the criteria laid down by the state government to identify households for Antodaya Anna Yojana (AAY), all tribal households are included under this Scheme (Orissa Human Development Report, 2004).
ABOUT
CORRUPTION

Variables Location Urban Rural Gender Male Female Education Illiterate Literate Less than primary Primary Secondary Graduate & Above 72 72 68 68 56 60 26 26 31 32 43 40 2 2 1 0 1 0 66 75 33 22 1 3 69 68 29 31 2 1 Hear say more Had first hand experience Dont know /Not sure
Among the districts covered in this study, proportion of BPL household having first hand knowledge of corruption is much higher in Khurda compared to poorer districts of Gajapati, Koraput and
354
Nuapada. Relatively higher proportion (33 per cent) of male reported first hand knowledge or experience of corruption. A higher proportion of educated BPL people have reported experience of corruption compared to the less educated ones.
Increased
Remained same
Decreased
22 27 27 18 23 21 31 28 32 20
31 29 30 27 28 37 31 29 21 20
46 44 42 55 49 41 38 43 47 60
Nearly 55 per cent of BPL household think that corruption has either increased or remained same in the last one-year. A similar trend was found within urban and rural. Relatively higher proportion of households in Khurda district think that corruption has increased in the last one year as compared to other three districts. It is pertinent to mention here that in the Human Development Index (HDI)2004 ranking 30 districts of Orissa, Khurda is in the 1st position while Nuapada (14th), Gajapati (28th) and Koraput (27th) have much lower ranking. Relatively higher percentage among male and literate BPL respondents think that corruption has increased in the last one year. About 45 per cent BPL households think that corruption has decreased in the last one year. In all the categories, the per centage of people who think corruption has gone down is greater than those who believe it has either increased or has remained the same.
Urban 54 35 1 1 5
Rural 53 38 1 3 3
Overall 53 38 1 2 4
In both urban and rural areas, more than half of the BPL households think that politicians are responsible for corruption. One-half of BPL households hold the bureaucracy responsible for corruption in the State. More than 90 per cent of the BPL households opined that either a politician or a bureaucrat is responsible for corruption. Very few (2 per cent) BPL households believe that everyone
Orissa
355
is responsible for corruption. About 4 per cent of the BPL households think that citizens themselves are responsible for corruption by not doing anything about it.
17.3 INTERACTION
WITH
PUBLIC SERVICES
Services BASIC Public Distribution System (PDS) Hospital Electricity School Education Water Supply NEED-BASED Banking National Rural Employment Guarantee Scheme Police Land Records & Registration Housing Forest
Urban
Rural
Overall
83 97 18 35 8 21 4 16 11
88 94 11 43 2 13 13 5 14 9 33
87 95 13 41 3 16 13 5 15 9 33
BPL households in the state has interacted with various public services for one or other purposes. This could be understood better by differentiating between basic services (which are required more frequently) from need-based services (which are required only occasionally). Among the basic services, highest proportion (95 per cent) of BPL households reportedly interacted with health services in the last one year. In the state, BPL households mainly depend on the government hospitals (PHC, CHC, Distt. Hospital) because of the provision of free OPD service, diagnostic service and medicines. The district hospitals are over-crowded because of the increasing number of referral cases from the CHCs and PHCs. As high as 87 per cent of BPL households claimed to have interacted with the PDS in the last one year. This high interaction could be due to the availability of highly subsidized food grains under the PDS. As per the NSS consumer expenditure data for 19992000, 51.38 per cent of the rural households accessed PDS for purchase of rice as against the allIndia average of 32.38 per cent. Among the need-based services, higher proportion of BPL households interacted with forest department in the last one year. Higher interaction with forest department was reported in Gajapati and Koraput districts because of the higher proportion of tribal population. The villages situated in and around forest area interact with forest guards and rangers for collection of fuel wood and NTFP. While 16 per cent BPL households reportedly interacted with banking services, an equal proportion interacted with land Records & Registration services in the last one year. There was no significant difference in the extent of interaction between urban and rural BPL households except in case of few services like Water Supply, Electricity and Education. Interaction of BPL households
356
with Electricity and Water services is low in Orissa, reflecting the deficiency of provision of these basic services especially in the rural areas.
Multiple Visits
Relatively a higher proportion of BPL households visited three times or more to avail the need based services compared to the basic services in the last one year. Among the basic services, higher proportion (37 per cent) of BPL households visited three times or more to avail the health services. Shortage of health staff in the PHCs and CHCs, combined with lack of laboratory facilities, necessitated multiple visits by BPL families to access health service. Next is PDS which was mainly contacted for the new ration card, change of address and ration shop.
Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Housing National Rural Employment Guarantee Scheme Land Records & Registration Police
BPL Households
14 14 37 19 6 66 48 47 40 24
New admission Non receipt of bill, faulty meter For getting bed New ration card, change of address, ration shop Regularization of unauthorized connection Open new account, seek loan Allotment of house / plot Registration for job card Sale / purchase of land, land on lease For filing a complaint
Nearly two-thirds of BPL households interacted with banking services three times or more primarily for opening new account, obtaining loan and deferment of loan installments. Banking service has fared comparatively well in other states in the current survey. The reasons for such a trend, therefore, needs to be looked into further. These are followed by NREGS, Housing and Land Records & Registration, which were interacted three times or more in the last one year to get their work done.

BPL families in Orissa seem to have an unfavorable opinion about most of the services vis--vis the level of corruption. With regard to basic services, 62 per cent of the BPL households, who interacted to avail the PDS services in the last one year, think the department is corrupt. Among the other departments, the perception of BPL households about Electricity (47 per cent), followed by Hospitals (43 per cent), Water Supply (36 per cent) and Education (26 per cent) is that corruption exists in these departments. The perception of Education department, however, is relatively better.
Orissa
357
There is Corruption
Not sure
No Corruption
26 47 43 62 36 21 60 66 45 48 43
42 22 36 7 32 49 17 11 39 33 29
28 20 20 31 10 27 12 20 15 15 14
Of the BPL households, who interacted with the need-based services, 66 per cent of them perceived Housing as the most corrupt. It is followed by forest department (60 per cent). Between 48 and 43 per cent of the BPL households perceive that corruption exist in NREGS, Land Records & Registration and Police. Among the districts covered in this study, relatively higher proportion (50 per cent) of BPL households in Khurda think that corruption exists in the Land Records & Registration department. This could be due to the spiraling land values in the district and the perceived nexus between politician, bureaucrats and developers.
Table 7: Level of Corruption in the Last One Year
Services BASIC School Education Electricity Hospital Public Distribution System (PDS) Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police
Decreased
Same
Increased
51 42 41 59 16 50 5 39 32 39 24
39 47 35 19 58 41 53 35 36 19 50
10 11 24 23 26 9 42 26 32 42 26
358
In case of basic services, between 10 and 26 per cent BPL households think that corruption has increased in respective departments in the last one-year. In case of need-based services, a higher proportion (26 to 42 per cent) of BPL households think that corruption has increased in the last one year except in the case of banking services (9 per cent). Of those BPL households, who interacted with the Forest department, as high as 95 per cent of them believe that corruption has either increased or remained same in the department. In case of Land Records & Registration service, relatively higher per centage of BPL households in Khurda and Gajapati districts think that corruption has increased in the last one year compared to Koraput and Nuapada districts. This could be due to comparatively higher land values in the former districts.

Table 8: Grievance Redressal
Improved
Same
Deteriorated
55 50 41 60 32 63 6 43 47 39 26
37 42 35 18 48 30 90 35 24 35 62
8 8 24 22 19 6 4 22 29 26 12
More than half of the respondents had indicated that grievance redressal mechanism in Orissa has improved in PDS, followed by School Education and Electricity among the basic services. In case of need-based services, Banking services have become better in the last one year whereas there is no such progress in other services.
17.6 INCIDENCE
OF
CORRUPTION
Of those BPL households who interacted with basic service, up to 17 per cent reported to have paid bribe or using contact or both to avail these services. Highest proportion (16.8 per cent) of such households had to pay bribe to avail the health services. Since OPD service, pathology services and medicines in the public health facilities are free for BPL people, the demand for these services are very high. Due to the pressure of patients and inadequate infrastructure, patients face difficulties in admission into the hospital, and sometimes they have to pay bribes for getting a bed.
Orissa
359
Incase of need-based services, the extent of BPL households paying bribe or using contact or both ranged up to 30 per cent. The incidence of paying bribe or using contact is low in Banking (2.1 per cent) and Forest services (4.3 per cent). Higher proportion is for Land Records & Registration (21 per cent) and housing (15 per cent). In the districts of Nuapada, Gajapati and Koraput, major proportion of BPL households are tribal and possess forest land mostly through encroachment. To continue its possession, they pay bribes to the lower level staff of the revenue department. In Khurda, the market value of land is high and the BPL households pay bribe to the staff of subregister office for under valuation at the time of land registration.
Paid Bribe
Used Contact
1.3 5.0 16.0 1.1 1.4 3.8 15.2 21.1 1.2 9.5
0.3 0.8 0.8 5.0 10.0 0.7 0.5 14.0 12.0 7.2
0.3 1.7 4.6 0.4 16.7 1.4 0.5 3.5 0.8 16.9 4.8
About 12 per cent BPL households used contact for selection as beneficiary or for getting either a job card or the employment, while about 17 per cent of BPL households could not avail the benefits of NREGS because they could not afford the bribe amount asked for. Certain irregularities in NREGS such as giving receipt to the job card applicant, not giving job card in time, nor providing work to the applicants in stipulated period in NREGS, especially in tribal belts of Gajapati, Koraput and Nuapada, have been reported in the local newspapers.

Analysis of the purpose of paying bribe indicates that BPL households paid bribe to meet their essential needs such as taking monthly ration, getting admission in the hospital and getting new electricity connection. The procedural complexity involved in reducing bill amount in case of excess bill, changing faulty meter and delay in health services (for operation, diagnostic services) compelled the BPL households to pay the bribe to avail the required services in time. In case of need-based services, since the interactions are related to specific problems as compared to routine work, BPL households paid the bribe depending upon the urgency and importance of the specific tasks involved.
360 Table 10: Purpose of Paying Bribe

Services BASIC School Education Electricity Hospital Reason for Paying Bribe
New admission; Review performance of child Bill payment; Excess Bill; To change faulty meter and New connection For getting bed/admission as in-patient; Admission as out patient; For diagnostic services; For medicineFor blood; For operation and For medical certificate To take monthly ration; Change of ration shop and address and Issue of new card To obtain loan Allotment of plot / house; Transfer of ownership and Release of loan amount Sale/purchase of land and mutation; Obtain Caste & Income Certificate; Obtain land records; Agricultural land on lease from panchayat; Purchasing stamp paper and Paying tax Filing a complaint; Remove name from witness and Character certificate For saplings; For collection of NTFP (Tendu leaf); Collection of Fuel woods Foe selection as beneficiary/ getting job card
Public Distribution System NEED-BASED Banking Housing Land Records & Registration
Police Forest National Rural Employment Guarantee Scheme (NREGS)
Route of Bribe
Most of the BPL households, who paid bribe to get their work done in the last one year, paid bribe directly to the government official/staff to avail the basic as well as the need-based services. The influence of middlemen is relatively less, except for Housing services and Police services.
Services BASIC Hospital
Agent/ middlemen
100 89 100 83 79 100 75 100 69 100
2 11 14 25 31
Public Distribution System (PDS) School Education Electricity NEED-BASED Land Records & Registration Banking Police National Rural Employment Guarantee Scheme (NREGS) Housing Forest
Orissa
361
Estimation of Bribe
In Orissa, around one-fifth of the BPL households reportedly paid bribe in the last one year for availing these basic and need-based services. The amount of bribe paid in the last one year by these BPL households in availing these services is estimated to be Rs 109.1 million.
OF
SERVICES

National Rural Employment Guarantee Scheme (NREGS) Forest
Water Supply
Police
Electricity Health Public Distribution System (PDS) School Education Banking Land Records & Registration Housing
Service-wise, relative position for the level of corruption in the state shows that the level of corruption is alarming in Forest service and NREGS. The extent of corruption in water supply service is Very High and Police High.

Simplification of procedure: Service providers providing basic as well as need-based services felt that simplification of procedures will help in a big way to curb corruption. Lengthy and complex procedures involved in the tasks such as excess billing, replacing the faulty meter, sale/purchase of land, mutation, allotment of plot/house not only causes inconveniencies for the BPL households but their repeat visits add more burden to the department staff. The officials were of the opinion that staff strength is inadequate which leads to slow delivery of services. More accountability and responsibility: The officials suggested that the accountability and sense of responsibility among the staff is essential in bringing transparency in the department. They also stated that there should be strict guidelines for the officials, which should be on display in each department. Head offices should take the lead and take proper steps to curb corruption, as branch offices would follow them. Need for greater awareness: There should be more camps and workshops to create/ enhance awareness about the procedure of work in the service delivery points especially in Land Records & Registration, Housing, Electricity and Banking services.

Inspite of being a state with low level of literacy/ education, Orissa has installed display board about Citizens Charters and RTI Act. It has also provided complaint box for the convenience of service seekers.
362

Services
Public Distribution System Electricity Hospital Water supply Police Banking Forest Land Records & Registration
In Orissa, nearly four per cent of BPL households are aware about RTI. The awareness is slightly higher (4.9 per cent) among BPL households in urban areas compared to rural areas (3.3 per cent). Male respondents are more aware about RTI than female (1 per cent). Only 2 per cent of the BPL households are aware about citizen charters. There was no significant difference on the extent of awareness about citizen charter across locations and gender.
RTI 3.8 4.9 3.3 4.5 1.0 1.3 5.1 4.3 2.4
Source of Awareness
Awareness about RTI is high in the district of Khurda because civil society groups had taken initiatives to widen awareness about the Act in its adjoining areas of Bhubaneshwar. The awareness about RTI is negligible in the backward districts of Gajapati, Koraput and Nuapada.
Orissa
363
Source Friends Government Source TV Radio Newspaper
Urban 29 6 29 12 18
Rural 43 26 13 17
Overall 37 3 27 12 18
In Orissa, given the low level of literacy, radio continues to be a dominant medium for dissemination of information among BPL households in the rural areas. To widen awareness further about RTI, television, radio and also newspapers should take on specific campaign. Equally important is to activate local networks effectively as a potential medium for this section of the society.
18. Punjab
18.1 ABOUT
THE
STATE
Punjab is popularly perceived as a rich, agrarian and entrepreneurial state but it is also a home to 2.2 million people living below the poverty line (BPL). This could be due to large migrant labor population from other states. According to Punjab Human Development Report, there are two million migrant labor population in Punjab. A significant per centage of them may be classified as BPL households. Their average monthly per capita income is Rs. 410 for rural and Rs 466 for urban residents. This study focuses on corruption as perceived and experienced by BPL households in Punjab. The study brings out that 32 per cent of eligible households do not have BPL cards, where as twoper cent of the ineligible households have BPL cards.

Over the last few years, there have been many instances of large-scale corruption cases against high level administration officials and political leaders. In view of this it would be interesting to analyze how people living below poverty line perceive corruption in the State.
Variables Location Urban Rural Gender Male Female Education Illiterate Literate Less than primary Primary Secondary
Hear say more
Dont know /Not sure
44 51 46 52 53 43 39 55 47
51 46 50 44 43 52 56 43 50
5 3 4 4 4 5 5 2 3
Despite reports of cases of high-level corruption, only 47 per cent of BPL households think that the corruption in public services is real. The perception of corruption is relatively higher among urban, male and literate BPL respondents. This could be because the reach of the media is relatively higher among urban and literate population, especially that of print media.
Punjab
365
Overall Location Urban Rural Gender Male Female Education Illiterate Literate Less than primary Primary Secondary
Increased
Remained same
Decreased
35 30 34 28 33 33 39 25 31
40 42 39 44 39 37 39 48 42
24 27 26 26 26 28 21 27 27
Around one-fourth of the respondents perceived there had been a decrease in corruption during the last one year. About one-third thought that there is an increase in the level of corruption, while two-fifths opined that the level of corruption continues to be the same.
Urban 29 47 1 8 10
Rural 31 50 0.5 6 9
Overall 30 50 1 7 10
Since BPL households are likely to interact more frequently with government functionaries, it is not surprising that half of the respondents think that Government officials are responsible for corruption, while 30 per cent of BPL households consider that politicians are responsible for corruption in the State. There is no significant difference in perception between urban and rural BPL households.
18.3 INTERACTION
WITH
PUBLIC SERVICES
Our research has shown that BPL households are far more dependent on public services provided by Government institutions/ agencies. Therefore, it would be interesting to capture the extent to which BPL household are interacting with various public services. However, there is a need to differentiate between basic services (which are required on daily basis) and need based services (which are required occasionally). Nearly nine-tenths of BPL households had interacted with PDS and Health services. Despite efforts on rural electrification, close to one third of the BPL households have not interacted with electricity department, this could be because the service may not be available in their locality. Only 12 per cent have interacted with water supply department.
366 Table 4: Interaction with Public Services
Services BASIC Public Distribution System (PDS) Hospital Electricity School Education Water Supply NEED-BASED Banking National Rural Employment Guarantee Scheme Police Land Records & Registration Housing Forest
Urban
Rural
Overall
86 87 62 51 13 33 13 8 9 4
88 88 64 56 12 39 7 11 5 8 7
87 88 63 55 12 33 7 12 6 8 6
Among need based services, except for banks / post office/ treasury, less than 10 per cent of the sampled BPL households have been interacted in last one year. This is a very low interaction rate compared to other states covered in this survey. It is surprising that although Punjab is known for its agriculture, only 5 per cent of rural BPL families have interacted with the Land Records & Registration service. This may indicate that the overwhelming majority of BPL households are migrant landless farm labour.
Multiple Visits
Service BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Housing Land Records & Registration Police
BPL Households
47 23 74 29
Admission, application for scholarship New connection, restoration of connection, billing, meter related issues Medicines, to get admitted as in-patient, for diagnostic service, blood etc Issue of new ration card, addition of family members, change in ration shop Installation & maintenance of hand pump, supply of water tanker Opening an account, seeking loan, pension Allotment of plot/ release of loan/ construction of toilets Obtaining land records, mutation, land survey, income certificate File complaint, as accused, to get the name removed
90 95 50 73
Punjab
367
Our earlier corruption studies have shown that citizen tends to pay bribe to avoid making repeated visits to a department to get a particular work done. In view of this, it would be interesting to study the extent and find out the reason why BPL respondents have to make repeated visits to get their work done. The data shows that in case of basic services, health is the only service which is approached repeatedly by 74per cent of BPL respondents three or more times to get medicines. It is followed by School Education (47per cent), PDS (29per cent) and Electricity (23per cent). In need based services, between 90 and 95 per cent of the BPL respondents had to make 3 or more visits for Housing and Banking service even for simple task like opening an account in a bank. Nearly threefourths respondent had to visit Police more than 3 times and 50 per cent of the cases to avail land records and registration.

Service BASIC School Education Electricity Hospital Service Public Distribution System Water Supply NEED-BASED Banking Forest Department Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
There is Corruption
Not sure
No Corruption
27.5 42.0 49.5 41.7 50.0 43.3 18.8 63.4 50.0 32.5 88.5
23.4 15.9 18.9 18.2 26.7 14.9 25.1 17.1 11.4 23.4 8.2
59.3 46.1 50.5 49.4 33.3 49.0 56.3 19.5 38.6 46.8 6.6
Overall, most of the public services are viewed as corrupt by more than 40 per cent of the BPL household covered in the study. Over one-fourth of BPL households, who have interacted with Education service in the last one-year, viewed department to be corrupt. In the case of Police service, close to 90 per cent, who had interacted, perceived them to be corrupt. The perception regarding forest and NREGS may not be representative since very few BPL households in Punjab have interacted with respective services. The impression regarding the change in the level of corruption in public services throws up a mixed picture. Over forty per cent of the BPL households think that corruption has increased in the last one year in Police, Water Supply Housing. In case of other departments, less than one-fifth of BPL households think that corruption has increased.
Service BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Forest Department Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Decreased
Same
Increased
48.5 34.8 44.6 45.8 13.3 36.7 43.8 9.8 25.0 23.4 16.4
49.8 51.6 52.8 49.8 56.7 50.5 43.8 46.3 56.8 63.6 37.7
11.9 17.7 21.1 13.4 40.0 20.0 18.8 43.9 18.2 15.6 49.2

Most of the respondents consider that grievance redressal mechanism have either remained the same or deteriorated. It has deteriorated alarmingly (51.2 per cent) in Police. Improvement in this mechanism has been reported by nearly half of the respondents in water supply, banking and education.
Service BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking Police Land Record & Registration Housing Forest National Rural Employment Guarantee scheme (NREGS)
Improved
Same
Deteriorated
34.3 33.5 40.5 45 48.1 47.1 7.8 25.8 29.1 35.7 27.3
43.8 45.2 42.7 39.1 28.1 41.2 41.1 45.2 43 45.7 53.2
21.8 21.3 16.8 15.9 23.7 11.7 51.2 29 27.9 18.6 19.5
Punjab
369
OF
18.6 INCIDENCE
CORRUPTION
Overall, in case of basic service, less than 5 per cent of the households have accepted to have paid bribe or used influence or both to avail their services. Some of the BPL households may not use the service at all if they have to pay bribe. This is seen mainly in Land Records & Registration, Water Supply and PDS services. In the case of need-based services, two-fifths of the BPL households have accepted to have paid bribe or used influence or both to avail Police services. Less than 10 per cent of BPL households interacted with other departments, have accepted to have paid bribe to get their work done.
Service BASIC School Education Electricity Hospital Water Supply NEED-BASED Banking Forest Department Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police
Paid Bribe
Used Contact
1.2 2.5 1.4 2.2 5.4 8.6 7.0 9.7 1.3 38
1.4 2.1 3.1 3.2 3.0 3.2 2.9 3.5 8.1 15.6 3.1
3.5 3.3 5.3 8.0 9.6 3.4 2.9 8.1 11.3 6.5 7.8
Public Distribution System (PDS) 4.8

Service BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking Loan processing; Deposit; Withdrawal of saving and Pension
Table Contd...
Admission; Application of scholarship Bill payment; Excess Bill; Duplicate Bill; Meter instillation; Meter malfunction and New Connection As in-patient Issue of new card; Deletion & addition of family members; To take monthly ration Maintenance of hand pump
370
Table Contd...
Forest Department Land Records & Registration Housing Police
Allotment of plot / house and Construction of houses Obtain land records and Purchasing stamp paper Selling property and Mutation Make a complaint; As an accused; Income certificate and Passport verification
In case of basic services, the reason for paying bribe is generally to register as a beneficiary, such as admission in School, meter installation for Electricity service, admission as in-patient of Hospital and issue of new PDS card. In case of need-based services, the reason for paying bribe brings out a need for more simplification and transparency in systems and procedures such as processing of loans or obtaining land records.

In our earlier studies, we have noticed that people were paying bribes to middlemen to get their job done.
Service BASIC School Education Electricity Hospital
Agent/ middlemen
50.0 76.9 72.7 9.1 46.7 40.0 57.1
23.1 36.4 45.5 46.7 40.0 14.3
50.0 7.7 45.5 6.7 20.0 28.6
Public Distribution System (PDS) NEED-BASED Banking Land Records & Registration Police
However, this study brings out that incidence of paying bribe directly to the department officials is on the rise. In case of Health, Electricity and Police departments, more than half of BPL households have accepted to directly have paid bribes to department officials. In the case of PDS and Land records, more than 40 per cent of households had paid bribe to the middlemen. A comparatively higher proportion of BPL families also paid bribes to local representatives. This in some way reflects the instances of corruption involving elected representatives that have been revealed in the media over the last few years in Punjab.

In Punjab, which is home to around 0.4 million BPL households, it is estimated that around 15 per cent of the households had paid bribe in the last one year to any of these departments. The total amount paid by these households is estimated to be around Rs. 33.5 million. At the household level, on an average each of these BPL households paid around Rs 582 as bribe in one or the other service during the last one year.
Punjab
371
OF
SERVICES
Corruption in Electricity and Health services is reported to be Alarming while banking it is considered Very High.
Electricity Health
Banking
Public Distribution System (PDS) School Education Water Supply Land Records & Registration Police National Rural Employment Guarantee Scheme (NREGS) Housing Forest

In order to capture service providers perspective on the issue of corruption and deficiency in the level of public service delivery, detailed discussion were held with staff of the selected even public services covered in the study. The responses of service providers are given below: Acknowledge the role of middlemen: Official of certain departments accepted that citizens approach middlemen in departments like land registration to avail the services. Simplification of procedures: The service providers informed that they have redesigned various forms / applications so that it is easy for the BPL households to avail / seek various services. Helpdesk: The service providers have informed that in most offices help desk has been set up to guide the people about various services and formalities required for availing them. Suvidha Centers: The computerized Suvidha centers have been set up at various cities / town across the State to facilitate service seekers. Need for awareness: Service providers have accepted that there is a need to create greater awareness among the people particularly about the various formalities / procedures for availing services, measures taken to improve the services and awareness about the grievance redressal mechanism.

In order to enhance the level of awareness among the Citizens Charters in the Departments of Banking, Hospital, Land Records, Electricity and Housing. These are completely missing in PDS and Water Supply. About RTI, display boards have been provided for its provisions and PIOs names in all the deptts. except electricity. As a tool to grievance mechanism, complaint boxes have been placed almost in all the deptts.
372

Services
No. of Display of offices Citizens Charter 10 6 7 8 5 8 6 6 2 5 2 4
Display Board on RTI Act 4 4 2 1 2 2
Board Displaying Name of PIO 4 4 2 2 2
Banking Electricity Hospital Housing Land Record & Registration Public Distribution System Water supply
Despite sustained media campaign about the RTI Act, hardly 4 per cent of the BPL households are aware about RTI. Similarly, only 6 per cent are aware about the existence of Citizens Charters. This clearly brings out a need for a lot more field based support to ensure that BPL households are aware and utilize these tools to avail hassel-free public services.
RTI 11 15 9 13 8 11 10 10 14
Source of Awareness
Source Friends Government Source TV Radio Newspapers
Urban 40 2 12 2 44
Rural 38 1 18 43
Overall 39 1 16 1 43
The source of their awareness are newspapers (43 per cent) and friends (39 per cent). The role of government departments is negligible.
19. Rajasthan
19.1 ABOUT
THE
STATE
According to Planning Commission estimates, 22.1 per cent of population or about 5.6 million people live Below Poverty Line (BPL) in Rajasthan. The incidence of poverty is higher (32.9 per cent of people are classified as BPL) in urban areas as compared to rural areas (18.7 per cent). The per capita poverty cut off for a rural BPL household is Rs. 374.57 and an urban BPL household is Rs. 559.63 in Rajasthan both of which are a little above the national average. But the per capita income inthe state is much lower than the national average. 1 The present corruption study revealed that around 34 per cent of the total BPL households in the state has not got BPL cards. This is very high considering that the state has a high proportion of both urban and rural poor.
ABOUT
CORRUPTION
Table: 1 Corruption: Hear say or real?

Variables Overall Location Urban Rural Gender Male Female Education Illiterate Literate Less than primary Primary Secondary Graduate & Above 23.6 20.9 16.8 22.4 10.9 17.9 71.4 71.4 80.5 76.5 86.4 82.1 4.9 7.7 2.7 1.1 2.7 20.0 20.2 77.4 73.3 2.6 6.5 19.0 20.4 77.8 75.8 3.2 3.8 Hear say 20.1 Had first hand experience 76.3 Dont know /Not sure 3.6
Only one-fifth of BPL households think that corruption is only hear say. More than three-fourths of the BPL households had first hand experience of corruption. The perception about corruption in Rajasthan, therefore, is unambiguous. It encompasses, gender and education levels. Relatively higher percentage of urban, men and educated among BPL people had reported first hand knowledge or experience of corruption. Most of the rest claimed it to be hear say.
1 According to State-specific Poverty Lines, 2004-05; Planning Commission
Increased
Remained same
Decreased
46.0 45.8 45.8 46.2 37.4 46.2 51.3 47.0 57.8 59.0
41.7 41.9 41.3 43.3 47.0 37.4 41.6 41.0 35.4 33.3
9.1 9.9 11.2 5.7 11.5 12.1 5.3 10.9 6.1 7.7
Around 46 per cent of BPL households think that corruption has increased while a little higher than 40 per cent think it has remained same as in the last one-year. Only one-tenth of the households think that corruption has declined. Relatively higher percentages of female and educated BPL respondents opined that corruption has increased in the last one year.
Source Government officer Politician All of them Citizen
Urban 51 31 12 5
Rural 55 25 10 8
Overall 54 28 11 7
According to the BPL households, government staff/officials and politicians are mainly responsible for corruption in public offices/services in the state. However, in comparison to politicians, the percentage of BPL households considering government functionaries responsible for corruption is almost double. However, more than 7 per cent of the BPL households think that citizens themselves are responsible for corruption.
19.3 INTERACTION
WITH
PUBLIC SERVICES
This could be understood better by categorizing the services in to basic services (which are required on daily basis) and need-based services (which are required only occasionally). Our research has shown that BPL households are far more dependent on basic public services as compared with the need-based provided by Government institutions/ agencies.
Rajasthan
375
Services BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED National Rural Employment Guarantee Scheme Banking Forest Land Records & Registration Police Housing
Urban
Rural
Overall
90.5 83.7 59.1 25.4 32.1 34.9 17.1 14.3 11.1
97.4 77.8 51.2 24.2 17.1 43.0 29.3 15.0 11.5 8.3 8.5
95.5 79.4 53.4 24.5 21.1 43.0 30.8 15.0 13.0 9.9 9.2
Among the basic services, over 95 per cent of the BPL households interacted with PDS while nearly 80 per cent interacted with the Health service during the last one year. More than half of the BPL households interacted with Electricity service. The high interaction could also be due to certain policies of the state government like free power to farmers and BPL families. Only about one-fifth of the BPL households surveyed have interacted with Water Supply service. Area-wise, BPL households interacting with Electricity and Water Supply service was noticed to be more in the urban areas than rural areas. On the other hand, percentage of BPL households from rural areas interacted more with PDS. Among need-based services, interaction with the NREGS and Banking services during last one year has been reasonably high. There are varying level of differences in the extent of interaction between urban and rural BPL households in case of basic and need-based services. The greatest magnitude of the difference is observed for Water Supply. In most of the need-based services, the level of interaction of the rural BPL households is less than that of urban.
Multiple Visits
Our previous Studies have shown that citizen tend to pay bribe to avoid making repeated visits to a service to get a particular work done. In view of this, it would be interesting to study the extent and reason why BPL households had to make repeated visits to get their work done. The study shows that in case of basic services, between 15 and 36 per cent of BPL households had to make 3 or more visits. In case of need-based services on the other hand, 46 to 65 per cent of the BPL households had to make 3 or more visits. These households are harassed most by the Land Records & Registration services, followed by NREGS, Housing, Police and Banking services.
376 Table 5: Multiple Visits
Services BASIC School Education Electricity Hospital
BPL Households
24 15 31 23 36
New admission, issue of certificate Faulty meter, to reduce/adjust excess bill, new connection As in-patients New ration card, addition of members Maintenance of hand pump, supply of water tankers, irrigation water New account, seek loan, deferment of loan Allotment of house / plot, housing loan, Construction of toilets Obtaining records, Sale / purchase of land property, mutation For filing a complaint. As an accused, remove name from witness Registration for job card, Issuance of job card
Public Distribution System (PDS) Water Supply NEED-BASED Banking Housing Land Records & Registration Police National Rural Employment Guarantee Scheme
46 50 65 46 59
19.4 PERCEPTION
ABOUT
SERVICES
Overall, the perception about basic services is slightly better than in the case of need-based services. In-case of basic services, maximum corruption is reported to be in PDS, followed by Electricity Hospital and Water Supply. Their percentages are between 41 and 61 Relatively, lesser percentage of those interacting with Education service perceives it to be corrupt.
There is Corruption
Not sure
No Corruption
21.3 50.2 49.3 61.1 40.9 25.3 56.4 72.1 77.0 46.2 91.4
18.3 19.2 19.5 17.5 22.7 18.3 23.6 8.1 8.2 28.8 3.2
55.7 24.2 29.8 19.1 29.3 54.0 17.9 15.1 10.7 24.3 3.2
Rajasthan
377
In case of need-based services, the BPL households who interacted with Banking perceived it to be least corrupt. It is followed by Land Records & Registration, Housing and Forest. Nine out of ten of those who are interacting with Police perceive them to be corrupt.
Table 7: Level of Corruption in the Last One Year
Decreased
Same
Increased
51.7 24.0 26.3 18.7 21.7 51.6 14.3 16.3 7.4 28.0 4.3
38.7 47.8 50.9 52.1 59.1 34.9 68.6 36.0 48.4 36.7 36.6
9.6 28.2 22.7 29.3 19.2 13.5 17.1 47.7 44.3 35.2 59.1
Various anti-corruption initiatives claimed to be taken have yet to make an impact on bringing down the perception level about corruption in the State. In case of basic services, while around 30 per cent felt that corruption in PDS, followed by Electricity (28.2 per cent), Hospital (22.7 per cent) and Water Supply (19.2 per cent) has increased in last one year, around 10 percent felt so for the services like School Education. In case of need-based services, higher percentage (35-60) thinks that corruption has actually increased during the last one year. Taking all services together, the perception of a decline in corruption is favourable only in the case of School Education and Banking, where more than half of the respondents felt that the level of corruption has actually come down over the last one year.

Improved
Same
Deteriorated
47.4 22.4 27.4 18.8 21.7
45.2 54.2 51.5 52.1 63.1
7.4 23.4 21.1 29.2 15.2

Table Contd...
378
Table Contd...
NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police 54.7 13.6 11.6 4.9 28.3 3.2 34.3 67.9 39.5 54.9 37.5 50.5 11.1 18.6 48.8 40.2 34.2 46.2
Almost half of the respondents acknowledged that the grievance redressal mechanism in the case of Banking and Education had improved in the last one year. However, over 40 percent BPL households felt that redressal system had deteriorated in Housing, Police and Land Records & Registration and PDS in the last one-year.
19.6 INCIDENCE
OF
CORRUPTION
Out of the total BPL households in Rajasthan, who visited the services/service delivery points to get their work done, only a small percent of them used contacts.
Services BASIC School Education Electricity Hospital
Pay extra money
Used Contact
3 15 6 8 9 6 15 12 31 11 56
12 8 13 12 6 8 5 20 14 10 13
0.4 4 1.2 1.3 3 4.5 2.1 15 7.4 3.2 2.2
Public Distribution System (PDS) Water Supply NEED-BASED Banking Forest Housing Land Records & Registration National Rural Employment Guarantee Scheme (NREGS) Police
The percentage of households who paid bribe to avail Police, Land Records & Registration, Forest and Electricity services is quite high. The share of BPL households paying bribe to Police is the highest (56 per cent). The responses of the BPL households suggest that a lot of BPL beneficiaries do not get their work done without paying any extra money or using contacts. This is reflected in the services of Housing, PDS and Health where respondents did not take the service as they were asked for bribe. According
Rajasthan
379
to a Times of India report (Sept. 25, 2008), patients having contacts did not have any trouble in Jodhpurs biggest government Umed Hospital. They claim, You just go through the Agents and they advise you. Such patients are provided with proper health care and expensive medicines. On the other hand, patients having no contacts are turned away.

Services BASIC School Education Electricity Hospital Public Distribution System (PDS) Water Supply NEED-BASED Banking Housing Land Records & Registration Forest National Rural Employment Guarantee Scheme (NREGS) Police Seek loan; Open new account and Defer loan instalment Allotment of plot / house and Construction of toilets Property transaction; Mutation; Obtain land records and Income certificate To pick fuel wood and Forest land for grazing of animals Registration for job cardIssuance of job card Make a complaint; As an accused and Remove name from witness Admission New Connection; Bill payment; Faulty Meter and To reduce/ adjust excess bill As in patient; For medicine; As out patient; For delivery and For diagnostic service Preparation of new card; To take monthly ration and Deletion & addition of family members Maintenance of hand pump; Regularization of unauthorized connection; Irrigation water and Repair of water pipe Reason for Paying Bribe
The purposes for which the BPL households paid bribe in the state shows that though few households reportedly paid bribe in the concerned service to get their work done but, on the other hand, it highlights the fact that in most cases they had to pay bribe to avail the basic facilities meant for. BPL households including getting pension, paying loan installment, bill payment and even for registering a complaint with the police.

In almost all the basic and need-based services, between 65 and 96 per cent of the bribe-payers had paid it to government officials/staff directly, except for NREGS and Housing. The percentage of BPL households, who paid extra money to the government officials or staff to get their work done is extremely high in Health (95.7 per cent) and Forest (95.2 per cent) services, while it is little less in other services. In the case of Housing and NREGS, a similar proportion of BPL households have paid bribe either to the officials or to the agent/middlemen. This may indicate a certain degree of collusion between the two. In case of NREGS, the local representatives play a significant role to route the payment of bribe, principally due to the very design of the scheme.
380 Table 11: Route of Bribe Payment
Services BASIC School Education Electricity Hospital Public Distribution System Water Supply NEED-BASED Banking
Agent/ middlemen
85.7 87.7 95.7 67.2 77.8 83.3 68.4 84.6 25.6 40.0 95.2
14.3 9.6 4.3 14.9 16.7 16.7 21.1 15.4 27.9 40.0 4.8
2.7 2.1 17.9 5.6 10.5 46.5 20.0
Land Records & Registration Police National Rural Employment Guarantee Scheme (NREGS) Housing Forest

In Rajasthan, around 32 per cent of the BPL households reportedly paid bribe in the last one year for availing basic and need-based services. The amount of bribe paid in the last one year by these BPL households for 11 services is estimated to be Rs 350 million. On an average, a BPL household had paid bribe amounting to Rs. 495.
OF
SERVICES

Police
Electricity Health Public Distribution System (PDS) Banking Land Records & Registration
School Education National Rural Employment Guarantee Scheme (NREGS) Housing Forest
Water Supply

According to the officials of different services, accountability of the officials and transparency in the service delivery along with the improvement in the quality will reduce the level of corruption. They also confirmed that there is a significant lacunae in service delivery for the general public and especially for BPL households. Problems: People face difficulties in enrolling as beneficiaries of various programs due to problems in documentation, procedural delays and long waiting times. The influence of the middlemen also creates problems within the system. It was reported that many applications have been received under RTI Act after it came into existence.
Rajasthan
381
Lack of Trust: In Rajasthan, the officials reported to have received very few written complaints against corruption. Measures to curb corruption: There is hardly any kind of advanced equipments like computers to bring transparency in the procedures. Toll free number and facility of call center are provided only at block level. The contact number of PIO has been displayed to help common people. Regular meetings and proper investigation have been conducted. Suggestions: Persons involved in corruption should get strict punishment or dismissal order. Payment of bills should be on time. There should be more employment generation schemes for BPL population. Electricity should be more subsidized or free for BPL. Costly diagnostic services should be provided free of cost to the BPL population. Dependence on the middlemen should be eliminated. Powers within the system should be decentralized. They were of the view that till the time the literacy and awareness level of the common man towards his/her rights will not increase, citizens will be vulnerable to different corruptive ways of getting their work done, though in some of the cases staffs are very helpful to BPL. They want the involvement of the middlemen in the processes to be abolished. They also opined that the general people should not be ready to pay bribe to the agents for the services they are entitled to. Some officials have reported that the staff is very inefficient and irresponsible because of nonaccountability. The officials, in almost all the service, were of the opinion that staff strength is not adequate which leads to slow service delivery and many a times it indulges in corruption. Eligible and efficient staffs should be recruited and encouraged.

Housing services are the worst in keeping citizens informed about Citizens Charters, RTI and providing complaint/ suggestion Box. It is followed by Water Supply.
Services
No. of Display of Offices Citizens Charter 9 6 6 6 6 6 6 6 6 6 0 4 5 2
Banking Electricity Hospital Housing Land Records & Registration Public Distribution System Water Supply
In Rajasthan, the awareness about RTI & Citizens Charters is as low as 5.5 and 4.5 per cent, respectively, in spite of the fact that the RTI movement had its roots in Rajasthan. However, interestingly the awareness of RTI is relatively high in rural, and among male and older BPL respondents while the awareness for Citizens Charter is relatively higher among the urban and
382
younger ones. The Reason for awareness levels not being high could be because neither the Govt. nor political party had taken it up. Awareness about RTI is maximum among persons of 50 years and above.
Table 14: RTI and Citizens Charters
RTI 5.7 4.8 6.0 7.1 1.6 4.6 5.2 5.6 8.1
Source of Awareness
Formal media campaigns like newspapers, and TV have played a key role in creating awareness about the RTI Act in the rural Rajasthan. This was supported by informal sources or word of mouth from friends, which surprising was absent in urban environment. Overall, hardly five per cent in urban areas could attribute their awareness to Government sources.
Table 15: Source of Awareness about RTI
Source Newspaper Campaigns TV Friends Politicians Government Source
Urban 23.5 17.6 23.5 5.9 5.9
Rural 42.6 21.3 8.2 8.2 1.6 1.6
Overall 38.5 20.5 11.5 6.4 2.6 2.6
20. Tamil Nadu & Pondicherry

20.1 1 ABOUT
THE
STATE
Tamil Nadu is one the most industrialized, as well as one of the most urbanized state. In spite of its achievements in socio-economic development, 3.27 million households are still in Below the Poverty Line (BPL) category. Pondicherry, a small Union Territory within Tamil Nadu, has nearly 56 thousand BPL households. The per capita income of the rural BPL population is Rs. 351.9, which is below the national average of Rs. 356. On the other hand, the per capita income of urban BPL population is Rs. 547.42 above the national average of Rs.538. For the present study a sample of 1301 BPL Households was collected, 1009 from rural areas and 292 in urban areas. These households were from Chennai, Pondicherry and three NREGS districts, i.e., Cuddalore, Dindigul and Thiruvanamalai. Considering the similar socio-economic profile of Tamil Nadu and Pondicherry, the findings of the state and the Union Territory have been discussed together in this report.

Though the government has taken initiatives for a more transparent service delivery, their impact on the poor especially those living below poverty line is yet to be seen. In this backdrop, this study attempted to know the perception and experience of the BPL households with the public service departments in Tamil Nadu.
(figures in per cent)
Hear say
Dont know /Not sure
30 34 31 36 38 33 27 38 30 29
65 63 66 60 58 64 71 60 66 70
5 3 3 4 4 3 3 2 5 1
384
Nearly 64 per cent of sample households opined that corruption in public offices was real and they had first hand experience. However, one-third of the respondents said that corruption was only hear say. There was hardly any significant difference in the opinion of households from urban and rural locations. The percentage of BPL households reporting knowledge of corruption was inversely proportional to the level of education. It was high in Cuddalore (72 per cent) as compared to other districts.
Increased
Same as before
Decreased
28 31 31 29 26 26 24 31 33 44
52 50 49 52 54 61 61 47 47 35
19 19 19 19 20 13 15 20 20 20
Nearly half of the households opined that the level of corruption had remained same as before while 31 per cent felt that it has increased. In Chennai, more than 70 per cent households were of the opinion that the level of corruption has remained same. Overall, 19 per cent of the households were of the opinion that corruption has declined this year as compared to the last year. A relatively higher percentage of educated respondents think that the level of corruption has increased with in the last one year.
Source Politician Government Official Citizens
Urban 16 47 33
Rural 14 42 39
Total 14 43 37
Around 43 per cent of the households held the government officials to be mainly responsible for corruption in public offices in Tamil Nadu. Also, more than one-third of the BPL households held citizens responsible for corruption in Tamil Nadu and Pondicherry, which is higher than that seen for other states in this survey. Surprisingly, BPL households seem to have a better assessment about politicians as far as corruption is concerned.
Tamil Nadu & Pondicherry
385
20.3 INTERACTION
WITH
PUBLIC SERVICES
BPL households are perceived to be more dependent on public services than others. So it becomes relevant to gauge the extent of their interaction with various public services. For this purpose, public services have been categorized into two groups, i.e., basic services (which are required frequently) and need based services (which are required only occasionally).
Services BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking National Rural Employment Guarantee Scheme (NREGS) Forest Land Records & Registration Housing Police
Urban
Rural
Overall
99 89 84 44 18 37 11 3 19
99 94 82 55 5 37 34 4 15 4 15
99 93 83 52 7 37 34 4 14 4 16
Almost all the respondents reported that they had interacted with Public Distribution System (PDS) during the last one year. They are followed by 93 per cent which had interacted with Hospital and 83 per cent with Electricity services. Only Water Supply shows a low level of interaction, especially in the rural areas. Except Banking (37 per cent) and NREGS (34 per cent), other need-based services did not show high level of interaction on the part of the BPL families. The interaction rate is the lowest for Housing, which may reflect the fact that earlier Housing schemes have fulfilled most of their requirements.
Multiple Visits
Earlier corruption studies have shown that citizen tend to pay bribe to avoid making repeated visits to a department to get a particular work done. In view of this, it would be interesting to study the extent and reason why BPL respondents have to make repeated visits to avail one or the other eleven services. Around one-third or more of BPL households in Tamil Nadu and Pondicherry had to visit Water Supply, School Education and Electricity services more than three times to get the work done. While in case of need-based services, 42 to 60 per cent of BPL households made three or more visits during the last one year.
386 Table 5: Multiple Visits
Services BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED
BPL Households
Reasons for three or more visits for same purpose
13 28 33 37 41 47 60 54 42 44
New ration card, Surrender of card, Application license, deletion or addition of family members name Getting bed, getting medical certificate & for delivery New connection, faulty bill, non-receipt of bill, meter installation Admission, issue of certificate, application for scholarship Installation of hand pump, supply of water tank Registration and issuance of job card, receipt of unemployment allowance Opening of new account, seeking loan, Allotment of house, Sale & Purchase of property, income certificate, paying tax Filing a complaint, getting character certificate,
National Rural Employment Guarantee Scheme (NREGS) Banking Housing Land Records and Registration Police

Nearly one-third of households interacting with basic service providers perceived that there was corruption in PDS, Hospital and Electricity. The adverse perception about Water Supply was considerably higher (two-thirds).
Service BASIC Public Distribution System (PDS) Hospital Electricity School Education Water Supply NEED-BASED National Rural Employment Guarantee Scheme (NREGS) Banking Housing Land Record and Registration Forest Police
Agree, there is corruption
Not sure Dont know
Disagree, no corruption
37 35 38 23 67 16 23 48 60 24 74
33 31 33 41 16 33 24 15 13 7 7
21 23 16 23 12 20 32 7 6 6
387
Regarding need based services, 74 per cent of households interacted with these services with in the last one year perceived Police the most to be corrupt. It was followed by Land Records & Registration service (60 per cent), Housing (48 per cent), Forest (24 per cent), Banking (23 per cent) and NREGS (16 per cent).
Table 7: Changing in the Level of Corruption
Service BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED National Rural Employment Guarantee Scheme (NREGS) Banking Forest Land Records & Registration Housing Police
Decreased
Same
Increased
19 22 16 20 24 28 33 4 15 2
60 65 60 66 42 61 52 79 47 65 46
21 13 24 14 34 11 15 21 49 20 52
Though the BPL households felt that there was corruption in all the basic services, the prevalence of corruption was more or less unchanged. In case of Water Supply, more than one-third felt that the level of corruption had increased during the last one year. In Police and Land Records & Registration services, however, nearly half of the households also felt that this level had increased within the last one year. One-third of the respondents felt that the level of corruption had come down in case of banking services, followed by NREGS (28 per cent).

Although some initiatives have been taken for grievance redressal, households were generally of the opinion that these measures have not made a significant difference within the last one year.
Service BASIC Public Distribution System Hospital School Education Electricity Water Supply
Improved
Same
Deteriorated
19 18 19 14 21
66 64 73 68 57
15 18 8 18 22
Table Contd...
388
Table Contd...
NEED-BASED Banking National Rural Employment Guarantee Scheme (NREGS) Land Records & Registration Housing Police 23 13 6 22 15 73 68 63 59 52 4 19 31 19 33
There is a provision of online grievance redressal in case of problems related to Electricity services. In case of other services such as Banking, School Education and Water Supply, the problems are addressed in the offices only. In case of Police service, the households opined that the grievance redressal measures have deteriorated with in the last one year.
20.6 INCIDENCE
OF
CORRUPTION
The incidence of bribes on BPL families varied across services. Among the basic services, the per centage of respondents reporting actual payment of bribe ranged from 13 per cent in School Education to 45 per cent in Water Supply.
Services BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking National Rural Employment Guarantee Scheme (NREGS) Forest Land Records and Registration Housing Police
Paid Bribe
Used Contact
16.0 22.2 24.2 12.8 44.8 13.4 4.8 9.5 44.3 38.9 66.8
1.3 1.4 0.7 0.4 5.2 1.5 1.7 4.8 4.8 11.2 1.5
0.9 1.0 0.4 0.6 2.1 0.4 0.6 1.5 1.1 3.7 2.0
About two-thirds of the households, who had interacted with police, had paid bribe to avail their services. Among the other need-based services, nearly two-fifths of the respondents had paid bribe to avail services in Housing and Land Records & Registration sector. Around 11 per cent BPL households also used contact in Housing service. The proportion of respondents reporting that they did not avail of a service due to corruption is comparatively low in Tamil Nadu, with the exception of Housing.
389

The findings reveal that the BPL households have paid bribe mainly for availing the services for which they had made three or more visits in case of both basic and need based services. The facilities such as online availability of forms for change of address in the ration card or issuance of duplicate ration card are in place. However, this is of little use since most of the households do not have access to Internet. E-governance strategies should be coordinated with measures to reach maximum number of households, possibly through Internet kiosks with touchscreen at the local government offices.
Services BASIC Public Distribution System Hospital School Education Electricity Water Supply NEED-BASED Housing Land Record and Registration Forest National Rural Employment Guarantee Scheme (NREGS) Banking Police Sanction or release of loan amount / Allotment of house Agricultural land on lease /Sale and purchase of property / Income certificate Picking fuel wood / Getting saplings Registration and Issuance of job card Opening new account / Seek loan /Defer loan installment File a complaint /Passport verification /Getting character certificate For getting new ration card / Change in address on ration card; To get monthly ration In-patient or getting bed; As out-patient / operation / Medical certificate /Delivery Promotion from one class to another /Admission New connection / Faulty meter /Irregular Supply Installation of hand pump Reason for Paying Bribe

A majority of the BPL households in Tamil Nadu and Pondicherry who had paid bribe did so directly to the government officials. There were very few who mentioned about paying to local representatives.
Service BASIC Public Distribution System Hospital Electricity
Govt.Official
Agent/ Middlemen
91 87 87
8 13 13
1
Table Contd...
390
Table Contd...
School Education Water Supply NEED-BASED Housing Land Records & Registration Forest National Rural Employment Guarantee Scheme (NREGS) Police
76 70 58 65 100 71 93
22 30 43 33 24 10
2 2 6 1
The households also reported instances of paying bribe to the middlemen or agent. Among basic services, School Education and Water Supply were the ones where agents were used. The proportion is higher in the case of need-based services; being highest in Housing service.

In Tamil Nadu and Pondicherry, three-fifths per cent of the households, who had interacted with the services, reported to have paid on an average Rs.447 as bribe during the past one year. The amount paid as bribe during the last one-year by the BPL households is estimated to be Rs. 976 million.
20.7 SERVICE-WISE STATE POSITIONING

ALARMING Water Supply Forest VERY HIGH Health Land Record & Registration Police HIGH MODERATE
Electricity National Rural Employment Public Distribution System Guarantee Scheme (NREGS) School Education Housing Banking

Initiatives taken in the State are as follows Drug Distribution Management System (under Tamil Nadu Medical Service Corporation) has improved the availability of drugs in nearly 10,000 government medical institutions throughout the state. PDS: Families with less than Rs.5,000 monthly income are eligible to draw the commodities from the PDS outlets. In Pondicherry, the forms for getting new or duplicate card for PDS shop are available on the state website. Housing-IAY: Under this scheme, free houses without adequate shelter are constructed for the BPL families in rural areas. Under IAY, 20 per cent of the allocation is earmarked for up gradation of Kutcha houses of the BPL families. E-initiatives: A number of initiatives have been taken to improve the delivery of public services and to bring their accountability and transparency.
Tamil Nadu & Pondicherry Land Records e-Service where one can view and extract their copy in Tamil Nadu.
391
Under REGiNET programme: Certificates available at computerized offices can be applied through the web and delivered through the courier. Currently, there is one REGiNET Centre in Tamil Nadu. Computerization of Ration Cards- Details of the ration card are available in a computerized database.
Although there are complaints regarding facilities in the hospital, health service where Tamil Nadu or Pondicherry, officials across the state reported that people especially those from BPL families were availing timely services. They informed that BPL families were given treatment free of cost for all kinds of ailments, diseases and accidents. One of the officers informed that public service centers have been started for providing consultation. The names of doctors and their numbers have been displayed and 24-hour ambulance services have also been provided. Similarly, the bank officials stated that they have started 24-hour ATM facilities.

The study team visiting Tamil Nadu and Pondicherry observed that the Citizens Charters were displayed in most of the service offices. However, the RTI information display board was not available in School Education and Police services. The board displaying the name of the Public Information Officer (PIO) was available in some of the services, while the complaint/suggestion boxes were available in most of them.
Services
No. of offices
Display of Citizens Charter
Display Board on RTI Act
Board Displaying Name of PIO
Availability of Complaint box
BASIC Public Distribution System Electricity Hospital Water supply NEED-BASED Police Banking Housing 9 9 9 6 9 9 0 2 3 0 2 0 9 8 6 9 5 6 6 6 4 6 6 6 2 3 6 0 1 1 0 6 5 6 1
In Tamil Nadu, display boards have been installed to provide information on RTI Act. However, PIOs names have been poorly displayed. There is availability of complaint box. Police performance is the worst in this regard.
392 Table 14: RTI & Citizens Charter
RTI 7 12 6 10 2 5 9 8 3
Only 7 per cent among the BPL households were aware about the RTI Act. The awareness level among males of 26 to 50 years age group was relatively higher as well as among the BPL households from Chennai district (14 per cent). The awareness about Citizens Charter was lower. No variation on the basis of gender or location of the BPL households was noticed.
Source of Awareness
Source Friends Newspaper TV Government Source Politicians
Urban 40 37 13 10
Rural 31 27 27 5 7
Total 34 30 22 7 5
Friends played a major role in creating awareness about the RTI Act. Newspaper and TV were the other major sources of awareness about the RTI Act.
21. Uttarakhand
21.1 ABOUT
THE
STATE
The state of Uttarakhand is popularly known as Devbhumi or, the land of gods. Uttarakhand became the 27th state of the Republic of India on November 9, 2000 after the hill areas of Uttar Pradesh were separated. A total of 3.59 million people live below poverty line in Uttarakhand. According to the 2004-05 Planning Commission data, 39.6 per cent of its population is below poverty line, with 36.5 per cent in urban areas and 40.8 per cent in rural areas. The per capita income of the urban population is Rs. 637.67 per month as compared to Rs. 478.02 per month for their rural counterparts. The present study focuses on corruption as perceived and experienced by people living below poverty line. The study is based on a sample of 777 BPL households of which 218 were from urban areas, while 559 households were from rural areas. They were from six towns and 18 villages across four districts, namely, Dehradun, Haridwar, Champawat and Tehri Garhwal. State is developing standards for-governance applications and specialized e-governance projects. The government of Uttarakhand has identified Human Resources Management System (HRMS) as one of its core initiatives. This is the most common function across the government departments and public services.

Hear say more 31.7 30.6 32.1 28.1 27.6 26.4 30.9 29.3 44.9 34.2
Had first hand Experience 67.4 66.9 65.8 69.8 69.7 71.7 68.2 69.0 52.0 65.8
Dont know / Not sure 0.9 2.5 2.1 2.1 2.6 1.9 0.9 1.7 3.1
394
There is a large difference between the proportion of BPL households who had real first hand experience of corruption as compared to those who considered the malpractice to be more of a hear say in the last one year. A little more than two-thirds of households in the urban areas had first hand experience as compared to a little less than one-third who claimed corruption to be more of hearsay. The proportion remains nearly the same across location, gender and education levels.
Increased
Remained same
Decreased
Dont know / Not sure
38.5 36.3 36.6 37.6 36.2 37.7 35.5 38.5 33.7 47.4
45.0 47.6 46.0 48.8 47.0 52.8 50.9 44.8 42.9 44.7
14.2 12.2 14.4 9.1 12.8 5.7 11.8 13.2 18.4 7.9
2.3 3.9 3.0 4.5 3.9 3.8 1.8 3.4 5.1
A greater proportion of BPL households think that corruption has increased over the last one year, compared to those who believed that it has declined. Nearly half of all the households surveyed saw no real change in the level of corruption.
Variables Politician Government officer Businessman All of them Citizen
Urban 33.0 45.9 0.5 7.8 12.4
Rural 33.8 46.5 0.4 7.9 10.4
Overall 33.6 46.3 0.4 7.9 10.9
In general, nearly half of BPL households opined that government officers were responsible for corruption. The perception is not much different between rural and urban areas. Nearly one in ten BPL households held citizens responsible for corruption in the state.
Uttarakhand
395
WITH
21.3 INTERACTION
PUBLIC SERVICES
Services BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking Police Land Records & Registration Housing Forest National Rural Employment Guarantee Scheme
Urban
Rural
Overall
91.7 82.6 56.0 46.8 31.2 50.0 6.4 11.0 9.6 14.7 11.0
92.3 81.6 60.8 47.2 14.8 41.9 3.6 10.6 9.8 23.1 26.3
92.1 81.9 59.5 47.1 19.4 44.1 4.4 10.7 9.8 20.7 22.0
In Uttarakhand, the interaction of the BPL households in the last one-year in basic services was the maximum with the PDS (over 90 per cent), followed by Hospital service (over 80 per cent). Interaction with the department of Water Supply was the lowest (i.e., 19.4 per cent), with the urban BPL households having greater interaction than those living in the rural areas. Among the need-based services, nearly half of all BPL households had interacted with the Banking service, while less than 10 per cent had done so for Police and Housing.
Multiple Visits
A relatively high percentage of BPL households had to pay multiple visits to Banking and Housing services. Electricity and PDS can be considered relatively efficient, with the proportion of multiple visits below 10 per cent.
Services BASIC School Education
BPL Households
22.4
Admission; Application for scholarship; Seek promotion from one class to another; Low attendance of ward; Not allowed to appear in exams; Issue of certificate(s); To check the quality of mid-day meal Non-receipt of bill; To reduce/adjust excess bill; Faulty meter; New /Temporary/Restoration of connection; Regular supply As in patient/for getting bed; For medical certificate/attestation
Table Contd...
Electricity
9.9
Hospital
23.7
396
Table Contd...
8.7
Preparation of new ration card; Surrender ration card/ change in address; Change of ration shop; Deletion & addition of family members in ration card and Permission for extra quantity during festivals/ marriages Installation/maintenance of hand pumps; Regularization of unauthorized water connection; Water meter installation; Supply of water tankers and Repair of pipeIrrigation water Open new account; Seek loan and Defer loan instalment Allotment of plot/house; Section/release of housing loan; Construction of toilets; Transfer of ownership Agricultural land on lease from panchayat Obtaining land records; Purchasing stamp paper; Sale/ purchase of land/property; Mutation; Paying tax; Land survey and Income certificate
Water Supply
23.8
NEED-BASED Banking Housing Land Records & Registration 60.0 46.0 36.1
Forest Police National Rural Employment Guarantee Scheme
31.6 20.5 28.0
To pick non-forest timber produce (NTFP) like tendu leaves etc. Forest land for constructing house For filing a complaint; Remove name from witness; Passport verification and Violation of traffic law For getting selected as beneficiary/registration for job card; Issuance of job card and Payment of unemployment allowances

The perception about corruption in Uttarkhand presents a mixed picture. Many respondents were not sure whether it existed or not, and a significant proportion also reported that they did not perceive services such as Banking and School Education as corrupt. On the contrary, the perception about Police, Housing, Land Records and PDS seems to be negative.
Services BASIC School Education Electricity Hospital Public Distribution System (PDS) Water Supply NEED-BASED Banking Forest Housing
There is Corruption
No corruption
15.6 32.7 28.9 41.2 25.2 17.2 13.7 69.7
41.8 41.3 40.5 35.4 45.0 45.4 55.2 26.3
42.6 26.0 30.5 23.5 29.8 37.3 31.1 3.9

Table Contd...
Uttarakhand
Table Contd...
397
Land Records & Registration Police National Rural Employment Guarantee Scheme
65.1 76.5 26.9
26.5 17.6 66.1
8.4 5.9 7.0

Services BASIC School Education Electricity Hospital Public Distribution System (PDS) Water Supply NEED-BASED Banking Forest Housing Land Records & Registration Police National Rural Employment Guarantee Scheme
Decreased
Same
Increased
30.1 14.3 25.5 14.4 19.2 33.5 18.0 2.6 4.8 8.8 5.8
62.6 67.5 60.7 62.4 69.5 62.4 77.6 67.1 55.4 55.9 74.9
7.4 18.2 13.8 23.2 11.3 4.1 4.3 30.3 39.8 35.3 19.3
As far as change in the level of corruption is concerned, between 55 and 77 per cent of respondents saw no change in the level of corruption over the last one year. However, more than 30 per cent of BPL households reported that in their opinion, corruption in Housing, Land Records and Police has increased. The most favourable opinion was for Banking and School Education services, and some improvement in perception was also noticeable for Health services.

In Uttarakhand, more than 60 per cent of the BPL households reported no change in the grievance redressal measures in the basic services category. Close to one-third of the BPL households reported that the grievance redressal measures in the school education and banking has improved in the last one year. Worst deterioration was in the Police and Land Records & Registration.
Services BASIC Public Distribution System Hospital Electricity
Improved 16.5 28.0 16.9
Same 63.1 61.8 70.8
Deteriorated 20.4 10.2 12.3

Table Contd...
398
Table Contd...
School Education Water Supply NEED-BASED Banking National Rural Employment Guarantee Scheme Forest Land Records & Registration Housing Police
32.2 23.2 37.6 7.6 21.1 6.0 5.9
62.8 68.2 58.3 73.7 77.0 59.0 72.4 55.9
4.9 8.6 4.1 18.7 1.9 34.9 27.6 38.2
21.6 INCIDENCE
OF
CORRUPTION
In Uttarakhand, only a small percentage of BPL families did not avail of public services due to demand for bribe. The highest reported incidences of bribe were for Police and Land Records & Registration services. The use of contact was also prevalent in Health, Housing and Land Records & Registration. Overall, contrary to the popular perception, the proportion of BPL households reporting paying bribes is less than five per cent in most services except Police and Land Records & Registration.
Services BASIC School Education Electricity Health Public Distribution System Water Supply NEED-BASED Banking Housing Land Records & Registration Forest Police National Rural Employment Guarantee Scheme
Paid Bribe
Used Contact
1.4 3.5 4.7 5.3 2.6 2.3 7.9 22.9 1.2 23.5 1.2
3.0 4.5 19.2 4.6 4.0 2.3 25.0 15.7 4.3 5.9 8.8
0.3 0.9 0.3 0.6 1.3 0.6 5.3 4.8 1.9 14.7 0.6

In most of the basic and need based services, bribes are being paid for the purpose of these services had been set up in the first place. Bribes are paid mainly to be listed as beneficiaries in various schemes of the government, and also for regular transactions such as paying electricity bills and getting the monthly ration from PDS.
Uttarakhand
Services BASIC School Education Electricity Health Reason for Paying Bribe
399
Water Supply
Admission; Application for scholarship and Issuance of certificate Bill payment; To reduce/adjust excess bill and Faulty meter New connection As in-patient / for getting bed; As out-patient; For diagnostic services; For operation; For medicine; Delivery (ANC/PNC) and For medical certificate/ attestation Issue and surrender of ration card; Change in address on ration card; Change of ration shop; Deletion and addition of family members in the ration card Permission for release of extra quantity during festivals/marriage; To take monthly ration Installation/maintenance of hand pumps; Bill payment; Regularization of unauthorized water connection; Repair of water pipe Open new account; Withdraw savings; Seek loan; Defer loan instalment and Pension Allotment of plot/house; Release of house loan and Construction of toilets Agricultural land on lease; Obtaining land records; Mutation; Paying tax; Income certificate To pick fuel wood and To pick non-timber forest produce (NTFP) like tendu leaves etc. For filing a complaint; As an accused; Remove name from witness; Verification for job; Violation of traffic law For getting selected as beneficiary/ Registration for job card
NEED-BASED Banking Housing Land Records & Registration Forest Police National Rural Employment Guarantee Scheme (NREGS)
Route of Bribe
It was observed that in most of the services, the government officials and the agents/ middlemen still ruled the roost when it came to taking bribes from the BPL households in the last one year.
Name of Departments /service BASIC School education Electricity Health Public Distribution System (PDS) Water supply
Agent/ middlemen
60.0 62.5 96.3 89.2 100.0
40.0 43.8 11.1 13.5
3.7 2.7
Table Contd...
400
Table Contd...
NEED-BASED Banking Police Land Records & Registration Housing Forest National Rural Employment Guarantee Scheme (NREGS) 62.5 77.8 77.8 50.0 100.0 50.0 25.0 11.1 27.8 50.0 50.0 12.5 11.1
The bribe was reported to have been paid by all to the government officials in Water Supply and Forest services, followed by 96.3 per cent in Health, 89.2 per cent in PDS, 77.8 per cent in Police and Land Records & Registration and more than fifty per cent in the rest. The BPL families also paid bribes to middlemen even in relatively less corrupt services such as Housing, Electricity, School Education and Banking. Nearly half of all bribe paid for being selected as a NREGS beneficiary was also to middlemen or agents.

In Uttarakhand, around 15 per cent of the BPL households, who had interacted with various services, reported to have paid an estimated amount of Rs. 3.76 million as bribes during the past one year for availing one or more of the 11 services. On an average, it comes to Rs. 425 as bribe.
OF
SERVICES

Health

(PDS)
Electricity School Education

Water Supply Banking Police National Rural Employment
Guarantee Scheme (NREGS)
Land Records & Registration Housing
Forest

It was observed that Citizens charter was not displayed in any of the delivery points either of the Forest or PDS service. Complaint box and board displaying the name of the PIO was found to be available in most of the services.
Uttarakhand
401
Services Bank Electricity Hospital Housing
No. of offices 4 3 6 2 6 5 2
Display of Display board Board displaying Availability of citizens charter on RTI act name of PIO complaint box 2 1 6 1 2 0 1 1 3 6 2 4 1 1 2 3 5 2 3 1 1 2 2 4 1 3 2 2
Land Records & Registration Public Distribution System Water supply

RTI 8.4 15.6 5.5 11.0 2.5 7.6 8.3 8.6 8.4
The awareness about RTI and Citizens Charter being only 8.4 and 1.7 per cent, respectively, was very low among the BPL households. Location wise, the awareness in urban areas about RTI was better than in the rural areas. Awareness level among males was found to be better than females.
Source of Awareness
Source Friends Government source TV Newspaper
Urban 4.7 14.0 30.2 44.2
Rural 17.4 6.5 32.6 28.3
Overall 11.2 10.1 31.5 36.0
The main source of information about RTI was through newspapers in urban areas and television in rural.
402

The most common suggestions provided by the officials were to raise awareness among the public about anti-corruption measures as well as the facilities to avail hassle-free public services provided to them by the government. They also felt the need for the increasing the level of education among people. Political interference from the leaders was also considered to be one of the reasons for corruption in the various services. Even though most of the officials said that necessary steps were being taken to look into the problems of the poor, the suggestions offered were not concrete. The officials in the health department specifically pointed out that there is a lack of staff in the hospitals, which should be looked into. Most of them were also of the opinion that corruption is rampant because people are not aware of the procedures for accessing Hospital services.
23. West Bengal

23.1 ABOUT
THE
STATE
West Bengal is being ruled continuously by a single government for more than two and a half decades. It has been motivated by a political and socio-economic vision that has been different from that most of the other states or central governments. The strategies of land reform, decentralisation and peoples participation through Panchayat institutions are unique in the state. Whatever West Bengal has achieved is in spite of the critical negative factor of having extremely high population density, which affects the per capita resource allocation. Among the States and Union territories, it occupies the 20th position in terms of Human Development Rank. About 72 per cent of its people live in rural areas. A significant part of the state is economically more backward and also tends to be less developed in terms of human development. West Bengal was a food-deficit state till 1980 after which it became food surplus. Later with crop diversification, it is now a major producer of vegetables along with jute and tea. Since 1990s the state has been characterised with low rates of employment growth - both in rural and urban sector, declining capital expenditure by the government with infrastructure bottlenecks, low and stagnant crop prices, declining access to food for ordinary people and worsening quality of public services. The total number of households in West Bengal is estimated nearly 16 million of which about 3.8 million, i.e., 24.7 per cent are in the BPL category (Rural - 28.6 per cent, Urban -14.8 per cent). Their per capita income is estimated at Rs. 382.82 in rural and Rs. 449.32 in urban areas. Ten districts of the state were covered under the first phase and another seven from this financial year onwards in the second phase of the NREG Scheme. For the Survey, a sample of 932 BPL Households (Rural 641; Urban 291) were selected from 7 towns and 21 villages of the state capital of Kolkata and three districts of Purulia, Maldah and Murshidabad (NREGS districts). Out of the sampled households, 16 per cent urban and 35 per cent rural informed that they do not hold BPL ration card despite their eligibility.

Out of the total households surveyed, 84 per cent believed that corruption in public offices are more hear say than real. While only 13 per cent reported to have had first hand knowledge or experience of corruption. The households with such experience in rural areas were more than double than those living in urban areas. The number of respondents reporting first-hand experience is considerably lower than in other states surveyed for this report. About 55 per cent of the families felt that level of corruption has increased in the state. Relatively, high proportion of rural, and less educated respondents think that corruption has increased in the last one year.
414

Variables Politician Government functionary Citizen Businessman All of them News Media None
Overall 48.6 42.6 6.4 0.9 0.8 0.6 0.1
Urban 41.5 46.4 9.0 0.7 0.3 2.1 0.0
Rural 51.8 40.9 5.2 0.9 0.9 0.0 0.2
According to the 91.2 per cent respondents, the politicians followed by the government functionaries are mainly responsible for corruption in public offices in the state. Only a handful (6.4 per cent), however, pointed out that the citizens are also responsible for corruption in the public services. Urban-rural variations in perception were also noticed, with more than half of BPL families in rural areas blaming politicians for corruption. Given the long history of panchayat elections and their involvement in service delivery, the contact of BPL families with local political administration is much higher in West Bengal compared to other states. Further, about 18 per cent of them informed that they know someone who had taken money or other favour for casting vote in favour of a politician.
23.3 INTERACTION
WITH
PUBLIC SERVICES
Majority of the households were found to have interacted with the Public Distribution System (PDS), Hospital and Electricity services in the last one year. Water Supply was the least visited service in the state. Banking and Forest services followed by NREGS were mostly visited among the need-based services.
Services BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking Forest National Rural Employment Guarantee Scheme Police Land Records & Registration Housing
BPL Households 94.6 87.0 30.2 16.9 3.4 29.7 21.0 15.7 10.1 5.7 4.9
West Bengal
415
While Electricity and Water Supply services were more frequented by the urban BPL households, Forest and NREGS were the most frequent interacted by rural BPL household.
Multiple Visits
Services BASIC Public Distribution System Hospital Electricity School Education Water Supply NEED-BASED Banking National Rural Employment Guarantee Scheme Police Land Records & Registration Housing
BPL Households
23 2 12 11 19 31 12 31 28 24
To get new ration card, Changing address in ration card To get bed, To get medical certificate Non receipt of bill, To adjust bill, meter installation New Admission, Issue of certificate Installation /maintenance of hand pumps Open new account, seek loan, defer loan instalment To get selected as a beneficiary, payment of unemployment allowance Filing an complaint, as an accused, Remove name as witness Obtaining records, sale and purchase, caste certificate Allotment of house/plot, transfer of ownership, Sanction of loan
Repeat visits for services were noticed in all the services. Generally, people pay bribe in order to avoid repeat visits. Among the basic services, PDS was one of the services where nearly one-fourth of the BPL households had to interact more than three times either to get a new ration card or change of address. The study brought out that in West Bengal, a very low percentage of people had to make repeat visits for accessing Hospital services. Except NREGS, the repeat visits ranged from 24 to 31 per cent needed for all other need-based services. To sum up, repeat visits to services were reported more in need-based services compared to the basic services.
23.4 PERCEPTION
ABOUT
SERVICES
Services BASIC Electricity Hospital Public Distribution System School Education Water Supply
There is Corruption
No Corruption
37 54 74 22 39
45 21 15 48 32
18 25 11 30 29
Table Contd...
416
Table Contd...
NEED-BASED Banking Housing Land Records & Registration National Rural Employment Guarantee Scheme Police 14 49 45 23 74 36 33 38 25 15 50 18 17 52 11
In order to measure the perception of BPL households on services, a set of three parameters whether corruption exists, the direction it is moving towards, and the situation of grievance redressal, were used Almost three-fourths of the respondents agreed that there is corruption in PDS, while a little more than half felt the same for the health services. Nearly two-fifths of the households felt that corruption exists in electricity and water supply services also.
Table 5: Change in the Level of Corruption
Services BASIC Electricity Hospital Public Distribution System School Education Water Supply NEED BASED Banking Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Decreased
Same
Increased
17 23 12 28 16 47 11 15 51 8
71 49 33 63 64 50 38 55 34 47
12 28 55 9 20 3 51 30 15 43
Among the need-based services, about three-fourths of the respondents felt that corruption prevails in Police. Nearly half reported that corruption exists in Housing and Land Records & Registration also. Corruption in Bank and Postal department was perceived by only 14 per cent of the respondents. About half of households feel that there is no corruption in Banking and NREGS. More than half of the households felt that corruption in PDS has increased in the last one year. That is why there are reports about PDS scam in the news media. More than three-fifths reported the same in Electricity, Education and Water Supply services.
West Bengal
417

Among the need-based services, nearly half of the respondents felt that corruption has decreased in Bank and NREGS services, and increased in Housing and Police departments. Two-fifths of the respondents felt that corruption in Land Records & Registration is same as earlier. The perception about increased level of corruption in PDS, Land Records, Police, NREGS and Housing services was found to be comparatively more in rural BPL households than their urban counterparts.
Services BASIC Electricity Hospital Public Distribution System School Education Water Supply NEED-BASED Banking Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Improved
Same
Deteriorated
18 20 6 27 10 49 16 4 48 7
68 59 47 61 71 41 42 60 34 61
14 21 47 12 19 10 42 36 18 32
Majority of the BPL households in West Bengal reported that the grievance redressal in the basic services remained the same as before in the last one year. A little less than half of the BPL households however reported deterioration in the PDS service. Among the need-based services, around half of the BPL households reported improvement in grievance redressal in Banking and NREGS services. Only 4.5 per cent respondents informed that they had lodged complaints about corruption. However, none could inform about any measures taken against any corruption in the last one or two years.
23.6 TYPE
OF
CORRUPTION
Among the need-based category, about 8 per cent of the households reportedly paid bribe to Police, followed by around 4 per cent each in Housing and Land Records & Registration services for getting a work done in the last one year. Compared to other states in the country, few families reported to have actually paid bribes or used contacts to access the basic public services. While nearly 7 per cent paid bribe for water supply services, nearly 10 per cent could not avail water supply services, as they did not afford to pay the bribe. About 3 per cent of the households reported to have paid bribe to the PDS shops for availing the services.
418 Table 7: Experience of Corruption
Services BASIC Electricity Hospital Public Distribution System School Education Water Supply NEED-BASED Banking Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Paid Bribe
Used Contact
0.4 0.2 3.0 0.6 6.5 0.4 4.4 3.8 1.4 7.6
0.4 0.1 1.4 7.7 0.4 11.1 1.9 0.7
1.4 1.0 0.1 9.7 0.4 2.2 1.9 3.4 3.2
About 11 per cent of the Households in housing services and 7.7 per cent in education reportedly used influence for availing services.
Type of Services for Paying Bribe

Table 8: Purposes of Paying Bribe
Service BASIC Electricity Health PDS School Education NEED-BASED Banking Housing Land Records & Registration National Rural Employment Guarantee Scheme Police Opening new account Allotment of plot/house; Release of loan amount Obtaining land records; Sale/Purchase of properties For getting selected as a beneficiary/Registration for Job Card Filing a complaint / as an accused; Remove name as witness Meter installation For getting bed/ Delivery To get a new ration card; Change in address; To take monthly ration Admission Reason for Paying Bribe
The purposes of paying bribe are somewhat similar to the reasons for repeat visit discussed above. In fact, it can be inferred that the households are paying bribe to speed-up their access to the particular service or to avoid repeat visits. The BPL households reported that in the PDS department they had to pay extra for getting new ration cards, for change of address on ration card and also to get their monthly ration.
West Bengal
419
While extra money was paid in housing department for getting plots allotment and get loan released, it was for obtaining land records and purchasing of land in to land department.

Service BASIC Electricity Health Public Distribution System School Education Need-Based Banking Housing Land Records & Registration National Rural Employment Guarantee Scheme Police
Agent/ middlemen
100.0 100.0 50.0 100.0 100.0 100.0 50.0 50.0 71.0
0 0 38.5 0 0 0 50.0 50.0 29.0
0 0 11.5 0 0 0 0 0 0
Among the BPL households, who reported of paying bribe did so directly either to the service staff or government functionaries. In services like PDS, Land Records, NREGS and also Police, nearly half of BPL households paid bribe through middlemen.

Around 4.3 per cent out of 3.8 million BPL households in West Bengal paid bribe to the services that they interacted with in the last one-year. An estimated amount of Rs. 44 million was thus paid by them to avail one or more of the eleven services covered in their study. On an average, a BPL household had paid Rs. 267 as bribe.
OF
SERVICES
Table 10 : Level of Corruption Relative Position

Health
Public Distribution System (PDS) Water Supply Police
Electricity School Education Banking Land Record & Registration National Rural Employment Guarantee Scheme (NREGS) Housing Forest
420

The service providers listed some initiatives that can further be taken up to reduce corrupt practices prevailing in their department. Make people aware: Almost all the departments mentioned that the only way to reduce corruption is to make people aware about the services rendered by them and the procedure and the documents that are required to avail each of them. Sufficient staff: To smoothen the process of service delivery, all the departments felt that more staff is necessary to reduce poor peoples dependency on middle-men. It was interesting to note that the PDS service providers claimed no corruption in their department even after the exposure of PDS scam. Electricity, Health, Housing and Police services reportedly getting regular complaints under RTI and also from BPL families. The land records department informed of getting huge number of applications from BPL families.

In a state where bandhs are called for every small rights-based issue, only 1.7 per cent of the household reported to have heard about Right to Information. They knew that it had something to do with getting information from the government departments. Citizens Charter was known to even less households, i.e., one per cent. Among those who have heard about Citizens Charter, 30 per cent mentioned about Citizens Charter of Bank, PDS, Health and Education services.
Services
No. of Office 8 7 7 7 7 7 6 7
Banking/Post Office Electricity Hospital Housing Land Records &Registration Public Distribution System (PDS) Police Water Supply
In spite of being a state with high level of literacy/education and one of the pioneers in decentralized administration through the panchayats, West Bengal still lags behind better performing states like Tamil Nadu and Himachal Pradesh as far as display of information about Citizens Charter, RTI and availability of Complaint Box perception is concerned. It has to create higher level of awareness about peoples rights. The knowledge about RTI and Citizens Charter is lower than in most of the states included in this study.
West Bengal
421
Source of Awareness
For rural people, government representative is the major source of awareness about the RTI Act. One-third of the urban people reported getting information from other sources.
Source Friends Government Official Media-TV Politicians
Urban 15 62 8 15
Rural 100
Overall 13 67 7 13
23.10 INITIATIVES
IN
WEST BENGAL
West Bengal has taken several initiatives to provide efficient, convenient and transparent services to the citizens particularly through information technology. The focus being on rural development, the state is implementing browser based information system for all circulars, Government orders and notifications on Panchayat Raj Institutions (PRI). It has also put in place an integrated fund monitoring and accounting system software, GIS based information system, touch screen kiosks at departments etc. Nearly seven thousand Citizens Service Centre has been set up as a One-stopshop for integrated service delivery throughout the state. There is also a move to connect all police stations and courts, and computerization of land records using the Bhuchitra software.

India Corruptino Study 2008

Încărcat de

Informații document

Drepturi de autor

Formate disponibile

Partajați acest document

Partajați sau inserați document

Opțiuni de partajare

Vi se pare util acest document?

Este necorespunzător acest conținut?

Drepturi de autor:

Formate disponibile

India Corruptino Study 2008

Încărcat de

Drepturi de autor:

Formate disponibile

India Corruption Study - 2008

India Corruption Study - 2008

Study Designed and Conducted by

Centre for Media Studies

Issued by TRANSPARENCY INTERNATIONAL INDIA

2008 Copyright: Transparencey International India Suggested Contribution: Rs.1000/-

10.0 Banking Services

Part - III: Perception and Experience of Corruption: State-wise

10.0 Jammu & Kashmir

16.0 North-East States

20.0 Tamil Nadu & Pondicherry

22.0 Uttar Pradesh

23.10 Initiatives in West Bengal

2. Working on Projects, Research and bringing out Publications

3. Educating Small Children

2. COVERAGE AND METHODOLOGY

India Corruption Study 2008

(arranged in alphabetical order)

Arunachal Pradesh, Manipur

INDIA CORRUPTION STUDY

India Corruption Study 2008

Part-I National Report

NATIONAL REPOR T EPORT

10. Banking 11. Police

India Corruption Study 2008

Figure: Perception about Corruption is much Higher than Actual Experience

India Corruption Study 2008

16 Table 6 : Recipient of Bribes

India Corruption Study 2008

(Figures are in percentages)

NEED-BASED NREGS Land Records & Registration Forest Police

India Corruption Study 2008

45 87 12 105 24 7 124 24 157 83 215 883

India Corruption Study 2008

RTI ACT BOUND

India Corruption Study 2008

Sl. No. Services offered

Formalities Required Form* Documents (Self Attested)

Designated Officer Room No. Tel. No.

Alternative Officer Room No. Tel. No.

Effective Grievance Redress Mechanism

Phone No. Office

Public Information Officer e-mail/ID

Res. Name Room No. Tel No.

SERVICE PROVIDERS PERSPECTIVE

2. Streamline Information Flows

3. Front End Staff Need Special Concern

4. Civil Society Activism is Better Bet

BPL HOUSEHOLD NEEDS

UNDERSTAND & SERIOUSLY ADDRESS PERCEPTION

India Corruption Study 2008

INCLUDE UNIQUE NEEDS

E-GOVERNANCE SCHEMES SPECIALLY ADDRESS BPL NEEDS

REDESIGN FRONT END OFFICES

UNIVERSALIZE BPL CARD

ENCOURAGE USERS FEEDBACK

REDRESSAL SYSTEM SHOULD NOT

ACHIEVEMENT CLAIMS LESS SIGNIFICANT

ACCESS NOT ASSURED

India Corruption Study 2008

COMPETITIVE POLITICS SHOULD SPARE TARGETED SCHEMES

APPENDIX RESEARCH METHODOLOGY

Within the Household, Respondents were Selected by the following Criteria:

A. For Exit Interviews