Shanbhag: The mighty village clerk (Government: Part 12)

Next day morning, Raju is ready to escape from the palace and go on tour to Tumkur.

Vani aunty smiled at him and said, “Raju, we forgot one simple thing! Whenever we want to escape this ivory tower, or from any situation, all we need is to take the time machine and come to 2013! We become commoners and can do anything without the trappings of power!”

“Oh you mean that, we will go back to 2013 and travel to Tumkur?”

“Yes, and anyway, not much has changed in the administration, so we won’t lose much!” winked aunty!

Raju laughed heartily!

Vani aunty turned on the time machine, and presto! They found themselves in the mid of Mysore Palace front lawn in 2013! Perfectly looking like commoners!

“Great aunty! This is good! We can use this time machine as and when required! Now let’s catch the next bus to Tumkur?”

Soon, both were sitting comfortably in the KSRTC bus to Tumkur. Once the bus started, Raju started his conversation with aunty.

“Aunty, now tell me about the administration in the districts and villages. We are going to see the office of whom all?”

“Raju, we will see the office of the three main officials in the district. The deputy commissioner, the Tahsildar and the village accountant.”

“Ok aunty! Where do we start?”

“Let’s start from the people’s side. It means, let’s start from the village. Indeed if you happen to look at the earth from an aircraft, you will find that most of the villages having clear boundary, and are the scattered in the landscape, and thus they are the natural administrative areas. 

Administration stars from the villages. So, we will start from village officials. 

We have different categories of officials who are connected with the village. They are from both the central and state government. We have teachers, postman, health workers, village accountants, agricultural extension officers, Gram panchayat secretary, Electricity board engineer, local police constable etc.

Raju, for a common man, the village accountant is the first person in the government. He represents the revenue department of the district, which is headed by the collector or Deputy commissioner. The revenue department is called as the mother department, as it's the oldest and also it takes care of all residual issues which are not defined.

Thus the village accountant is an important post. However, each village does not have a village accountant. But, there is one village accountant for a group of 3-5 villages. This village accountant is called as ‘Shanbhag’ or ‘Talahti’ or ‘Patwari’ etc. His main work is to keep account of all the land details of the villages.”

“Aunty, then I guess each village should have one Village accountant instead of giving a group of villages, as he may not be available to a particular village when required? Or does he work as per a strict time-table?”

“Raju, you are right! It is a difficult task for a village person to get hold of the Shanbhag! Every time somebody wants him, he will be at the ‘other village’!! Though there are time-tables prescribed, hardly any Shanbhag follows it, as the timetable is often violated by the meetings or discussions called by the senior officers. So, the time table is for namesake!”

“Why can’t the deputy commissioner issue strict orders and make surprise inspections and suspend the Shanbhag who is not present as per the time table?”

“They do that. But, still it's difficult to enforce. For example they will say that they were called by Tahsildar to get an urgent document, and that's why they could not be present in the particular village. As the government priorities are so volatile, fixed timetables are difficult to adhere to."

“Aunty, then the government should post one Shanbhag per village? That would ensure that they are available to the villagers? Else it will be frustrating for the villagers to search for the Shanbhag. And, by the way, what do the villagers need Shanbhag for?"

“Raju, they require him for variety of things. Starting from making changes in the ownership of land, getting caste certificate, income certificate till including the name in the voters roll, everybody needs a Shanbhag. He does all the residual work too. He is like the Tahsildar for the village! He wields quite an amount of influence in the village, though it has been watered down substantially in the recent decades.

You may think that, if that being the case, why the government is not appointing one Shanbhag per each village. In-fact, it will bring good name to the government.

Even I don’t know why the government is not appointing them. But, I guess it will require lots of money. Around 30,000 villages are there! Even if you pay each 30,000 per month, it costs around 1000 crores an year! Presently, they must be managing with around 200 crores. A five-fold increase may not be easy!”

“But, aunty, I would still like to have one officer at village level, and try to solve this problem in an innovative way as everybody would like to have one official at the village level who will represent the government and who can engage the people on behalf of the government. I would also want him to be very smart and good, because he is the ambassador of my government! Even the villagers will be happy with one person in-charge for all government issues. It’s so simple aunty! Why can’t the government do this?”

“What you are saying makes sense to me Raju. We need to have a one official from the government side for all issues concerned with the government. 

So, instead of having multiple officials at the village level, that too for a group of villages, it’s better to have one official per each village, who will be overall responsible for the village. There will be motivation, accountability etc. 

Years back, when the communication was not so much advanced, government could have been right in not giving all powers to one official, but, now, with instant communication facilities, nobody can misuse power and get away with it at the local level. So, a single official as village level is a good idea. Government should go for it. I don't know why there is not doing it!"

“I agree aunty. It puzzles me also. If the government can concentrate all the powers at the level of a Taluka, by appointing a Tahsildar who is almost the premier of the Taluka, why not at the village level?! Nowadays, we get the brightest of men and women, and with real-time communication facilities, they can do wonders!”

“Yes, Raju, you are right. But there may be other issues like the promotion of such officials etc. What will happen to these 30,000 Shanbhags after 5 years? They need to be promoted. Isn't? The next level will be the Panchayat level, where we have group of 3-5 villages. Thus we will have 6,000 panchayats.

It means, 4 out of 5 Shanbhags will lose their job after 5 years, of remain in the same position. When they lose promotion they will get de-motivated and may not perform well.”

“I agree aunty. But, we can always take them on short-service commission like the army does. Tell them that only one in five will get promoted and others can leave the service or stay in same place if they want.”

“It’s a good idea Raju. But, we need to think thru. What will they do after five years? Also it is likely to make the promotion issue so contentious, and every promotion may be questioned in the court of law. If the court stays the promotion, then all of them continue for more time. That would mean no new recruitment at the 5th year. Isn't Raju?”

“Agree Aunty. But, why will they go to court if we make the system very transparent? Do the army officers go to court on their promotions?”

“I get your point Raju. You are right. If we have a transparent system, I do not think that the Courts will intervene. Even if they do, once they are convinced that the promotions are done in a scientific and transparent manner, they will desist from entertaining frivolous petitions."

"Also, even after 5 years, the person will have rich experience and can join anywhere else. I know of many NGOs who want to have such experience. Nothing like working as a village accountant for 5 years! Even i would love to work as Shanbhag Aunty! It would give me very good idea of how things work at ground level. That will equip me well in whatever i do later in my life!"

"I agree with you Raju. Government should go for a single-window administration at the cutting-edge level of villages or towns or cities. Presently, it's all confused. People don't know whom to meet for what!"

“That’s my point Aunty! Look at the towns, cities and even Bangalore! There is no one officer we all can approach for our business with government! Leave alone the specialized services like water, power etc. For all other residual services like BPL cards, voters list, land issues we have no idea whom to contact! That’s how the middle men thrive!

Now, with the help of the information technology and the power of networking, the government should overhaul its systems. Systems which were designed 100 years back can’t deliver in this age and time! How long we are going to take to change? People are already knocking on the door worldwide.”

“I agree Raju! Let’s visit the offices of Shanbhag, Tahsildar and Deputy Commissioner to understand the issues much better! Another 30 minutes, we will get down at Kyathsandra and will have a look at the Shanbhag’s office!”

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(to be continued next Sunday)

Understanding the government...Part 11 (The Ivory Tower!)

Raju came out of the meeting hall smiling!

“What happened Raju? All went well?”

“Oh yes aunty, I realized that, in government meetings, all goes well for the person who chairs the meeting, the problem is to those who attend the meeting! Lol!”

Aunty laughed! “Good observation Raju!” So you finally took the decision on the tax issue?”

“Oh, yes, and I will tell you the details later, now I have to prepare for my tour. I have asked the Diwan to help. He may come anytime! So, tell me soon, where will we go?”

“Anywhere Raju! All is yours! You want to go closer or far-off place?”

By that time the Diwan appeared and Raju thought that he will take help from the Diwan himself.

“Your highness, where you want to go?”

“Where do you think I should go? Why don’t you only suggest a place?”

“Tumkur’? It’s not far off, yet not close too. You may like to visit the famous Devarayanadurga temple too! Normally the kings connect their tours with visiting temples, the abode of Gods!”

But Raju’s mind was on things on the Earth. “I want to visit villages affected by the failure of monsoon and crops. I want to see how our government is helping them. I want to see how our administration is at the ground level.”

Diwan thought for a moment. Then he looked at Raju, “Yes your highness, If you so wish, we will go to Tumkur and see the ground situation regarding the failure of crops and the administration.”

“Ok, we will start tomorrow early morning at 7 am?”

Raju could see the Diwan's eye brows going up in surprise.

“Highness, that will be too early. First we need to make a detailed programme and then send that to the local deputy commissioners. In this case to Deputy Commissioner, Tumkur. Then we need to give 4-5 days time for preparations both here and at Tumkur."

“4-5 days for preparation? What preparations?”

“Your highness, when you move on tour, lots of people move along, starting from a part of our kitchen, till the king’s bodyguards, a whole paraphernalia moves! And next it’s the arrangements that have to be made for your stay in Tumkur. The deputy commissioner needs at-least three days time. So, we make a ‘Tour programme’ and send it to the concerned with minimum 3 days notice period.”

“What?! My kitchen moves with me?! Why? I can’t eat food cooked in Tumkur? And I need my body guards? What about the Police in Tumkur?"

“Highness, I would humbly suggest that we shouldn't make any sudden changes on the systems that have been followed since long. They are time tested.”

Raju sensed that this could turn into an uncomfortable conversation. “Ok Diwan sir, let me think about it and get back to you! Meanwhile you can make a programme draft as you wish and put it up to me.”

The Diwan bowed and left.

Raju almost ran into the room looking for aunty.

“Aunty, tell me this first! My kitchen moves with me when I travel??!”

Aunty laughed at him! “Oh yes, my dear! You are after-all the King! Not only the kitchen but a huge retinue moves with you! Have you not heard of the King’s camps later becoming towns?!”

“Goodness! Don’t tell me that in 2013 also same thing happens!”

“Lol! It does happen in 2013 also, but partially! When the head of the state, the president or the Governor moves, along with them a huge entourage moves! The procedures are written down and it’s called as the blue book, which details the number of vehicles, persons who accompany the VIPs!

Even with the PM and CM also, we have security team, and his personal section moving along with him! All these arrangements take some time. So, you just can’t start your tour the next day morning my dear Raju!”

“But, aunty, I don’t want all that! I want to just go along with you and if required, the Diwan and see for myself how the things are in the districts.”

“You mean, a surprise visit?!”

“Is that called a surprise visit?! I thought that’s normal visit! In-fact this ‘Tour programme’ looks funny to me aunty! I understand that we may need security etc., but can’t it be given at the local level? Or maybe just one or two officers can accompany while I travel ?”

“Oh, we will discuss those details later Raju! Now, tell me, you want to go for a surprise visit?”

“Yes aunty! But, how do I do that? I could see from this room down, so many of the guards and officials. How do I escape the attention of all of them?”

“That’s the point Raju! As you are king and you are so powerful, there are so many persons waiting to meet you! Most of them need a favor and many more take advantage of your proximity. So, where you are every minute is always tracked. Many will even know when you switch of the light of your room! And, trust me, I am not talking about the security threat you may have due to your enemies in other kingdoms and within!”

“That’s scary aunty! If I can’t move freely and meet people, then am I not keeping myself away from the real world? Then how can I take big big decisions that affect the common public? That’s why they tell that kings live in ivory towers?”

“You are right Raju! Most of the time people sitting in the top lose touch with the reality. But, back in 2013, things are much better! You have phones, internet etc which can make you keep in touch with the public if you choose to, midst of your busy schedule!”

“I understand that. But, if I don’t do that, I depend on my secretaries and commissioners? And I find that they are also having some 15 layers till they reach the last mile. And 15 layers can make white to black and ant to elephant. Isn't?”

“Of-course Raju! In every layer of communication, some inefficiency is introduced, that by the 5th of 6th level, the information gets badly distorted to have any value!”

“Then how does this 15 levels are still working aunty?”

“That’s why government works only on paper! Lol! I didn't mean that way Raju! I meant to say that, all the work of government happens by writing, do that it can’t get distorted even it passes thru 100 layers! Though it led to delays in the olden days, now, with fax and internet, things can be really faster!”

“But, aunty, you only told me that government is yet to use the IT tools like emails etc fully?”

“Yes Raju! You are right! But, they are working on it! Things will improve a lot in coming days!

You leave aside that, do you really want to go for this surprise inspection? Then you have to disguise yourself or you can’t even leave this palace! Forget about going to your districts!”

“Disguise? Like the kings in the olden times did? Why can’t I tell my guards not to stop me and walk out of the place?”

“Silly, somebody in the guards will tell whisper in the ears of another, and when you step out of the palace, you will have some 10 to 20 guys following wherever you go!”

“Oh yes! Ok, then let’s disguise ourselves and leave? Come aunty, it’s exciting! I will disguise as my attendant?!”

“Don’t be mad Raju! They will know when they see the face! If you cover the face and move out, your own police will catch you! So, I have a better idea. Tomorrow morning, say you are going for a ride in the horse. Once you are just with your body guards, ask them to come and meet in the normal place.

But, you take a deviation, and come to the old house just adjacent to the road to Chamundi hill. I will keep alternate clothes and another horse cart for you. We both will escape in that and ride to the nearest market! From there we can travel as common citizens to your Tumkur!

 “Oh, this idea sounds great! Let’s do it! I can’t wait to go to the countryside and see how things are there!”
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to be continued next Sunday...

(NB: As per the feedback, the narration will be continued in third-person!)

Understanding the Government...Part 10 ('Kitne aadmi the?')

Aunty and Raju were walking towards the meeting hall.

“Aunty, how many decisions will be taken in this meeting? You think it’s only about the tax waiver or will they discuss other four issues too?"

“It must be only for the tax issue. If other issues are to be discussed, then you need to call a huge battalion of officers! Remember, each department in government has multiple levels!”

“Hmm. I guess so. Aunty, tell me something, how many levels a department in government will have?”

“Depends. Say, if you take the PWD, the Public Works Department, it has around 15 levels from the top to bottom!”

“Goodness! 15 Levels? I think even a multinational company working across the globe will have only 8-9 levels maximum!”

“Haha! I don’t know that! But, here it’s like this: The top level is the Minister, then the Principle secretary, Secretary, Additional Secretary, joint secretary, deputy secretary, under secretary, section officer, Manager, shirestedar, FDA, SDA, Typist, Group D employee! There is also a chief secretary, who comes in between the minister and principle secretary when required. How many levels now?”

“Pura 15 sarkar!”

“Haha!! This list was of the state head-quarters, which is equivalent to a corporate office. In the field (districts), which is the executive arms of the department, it will be: Engineer-in-chief, Chief Engineer, Superintending Engineer, Executive engineer, Assistant executive engineer, Assistant Engineer, Junior Engineer, Section officer, Work Inspector, Mechanic grade 1, Mechanic grade 2, Group D.

Now, how many?”

“Another 12 now!”

“See! Thus there is delay in taking decisions! Now, if a decision has to be taken on a request from a village to make a bridge, the file has to travel more than 20 tables!”

“Goodness! And, aunty, I was told that each table can hold a file up-to a week? It means, if the local people of a village want to make a bridge across a road, and if the local Junior Engineer makes a proposal, then the file goes thru all these 20 tables, till it gets approved by the Minister.

At the one week rate, it will take 5 months to reach the minister. Suppose the minister asks for a clarification, it takes another 5 months to reach the field officer at the bottom of the chain, and another 5 months to reach the Minister back!”

“Haha! Yes Raju! It may sound ridiculous to you! But, that’s how it is!”

“Aunty, do all the proposals come to the Minister? There should be some delegation of power to the field officers?”

“Yes Raju, there is, but it’s very less! If a work is planned ahead, and part of the department ‘Annual Plan’ then, then the local officer can call for tenders and execute the work up-to 20 lakhs. But, if the work is not budgeted, means, a new proposal, say, villagers make a demand, then he has no powers to take decision. He has to make a proposal and send it upwards if the cost is more than a lakh. And, 99% of the times, it’s above 1 lakh and the file is send upwards!”

“Goodness! But, how come sometimes I read that bridge work is sanctioned by the minister in a week or so? Or how come they do things fast when VIP visits the area?”

“That happens only as an exception. It happens when there is an emergency like flood etc too. Such times, the concerned officer takes the file personally from table to table and get’s it approved. As all the levels know the emergency, they will also approve it immediately. But, in normal times, an officer taken files personally, they will question him if he has a ‘personal interest’ in that file!”

“Hmm, aunty, I do understand all those issues of mistrust, checks and balances etc. But, still these many levels look bad. It leads to so much delay. Delay leads to loss to public and bad name to government. Infact delay also contributes to corruption. Isn’t Aunty? Why can’t the government do something about it? Does this much hierarchy exists in other states and other countries?”

 “The system is almost the same in India, with small variations here and there. But, in other countries, the levels are less. More than that, they have lots of delegation. There, only less than 30% files travel upward for approval.”

“Then why are we are not copying that in India?”

“Intelligent question Raju! But, difficult to answer! May be you should try doing it here, in your kingdom, so that you understand the difficulties in implementing it.” Winked Aunty!

“Don’t make fun aunty! Tell me, why can’t we cut down these layers?”

“One answer could be that, the field level officers do not have the capacity to take decisions. Imagine a Junior Engineer taking a wrong decision on a 1 crore project or he abuses his delegated authority to make money for himself.

Government not only loses the money but, again gets a bad name. Indeed, the bad name here will be much more as it will be painted as corruption.”

“Hmm, I understand it now. So the government chooses the lesser evil; delay over than of corruption. While people sort of accept delay, they do not accept corruption!”

“You got the point!”

“But, aunty, why can’t government design system that will ensure no-corruption? Say bring in transparency, and so that the local Junior Engineer can’t make money?”

“Now you have come to the important point Raju! Yes, the government can do that, and it should do that! In this age and time, thanks to the revolution in Information Technology, things can be made so transparent, thus acting as a deterrent to corruption. This was not possible many decades back, when there were no computers and many people were not educated and able to understand things. But now things are different!

I also think government is doing this in its own speed! We keep hearing about initiatives on e-governance and m-governance here and there. May be it should happen faster!”

“Yes, aunty, I also see that happening. But, not at a speed it should be. Also, I feel that we need a complete overhaul of the system. I am indeed surprised how we are still having the same British system till now, even after 66 years of Independence!”

“Oh yes Raju, the British system also added more tables and layers! During those days, the administration was headed by the ‘British’. They had the ‘natives’ to assist them, who were generally in the posts of clerks, attenders etc.

So, there were unnecessary layers of people to assist the ‘British officers’. You will have orderlies at home, separate persons to take care of the office, one person to take care of appointments, one to plan tours etc. May be those days there was a requirement, as the ‘British officers’ couldn't talk to the local people directly in their language.”

“I understand that aunty. But, we should have changed all that in 1947?”

“We could have! May be we were occupied with much more critical issues like partition, building the country from what was left etc. Change is not easy and it’s always resisted. So, things would have continued and it may continue till the tipping point!”

“But, now that it’s is clear that the present system is struggling to deliver, shouldn't we, the public, demand a change in it?”

“We should. But, tell me one thing Raju, how many of your friends will be ready to take this up as an issue, like Anna Hazare took up corruption issue?”

“I can’t think of any! This is totally unglamorous to ask for cutting the hierarchy in the government! Better will be to shout slogans against corruption!!

More, how many know of this problem to start with? Unless they understand this issue and its effects, they can’t be expected to join hands to change the system. Isn't?”

 “Yes Raju, apart from being unglamorous, it’s difficult to explain to public and get support for such fundamental issues, which may not have a direct bearing in their life. Public will be more ready to participate and support a cause that they know well and that affects them directly, like say, corruption!”

“Very true Aunty. It’s a challenge to get the attention of the public on such genuine fundamental issues.”

“Yes, it is a challenge. A challenge that youngsters like you, should take up Raju. You should explain things to others create a movement and then demand a change. It will work.”

“Hmm, I am thinking aunty. It’s a huge task. But it’s worth it. It’s worth any amount of sacrifice. We need to plan a lot.”

“Oops! Your meeting hall has come! You finish the meeting. You were also talking about your tour. We will discuss things during our travel. Now, wish you the best for your meeting!”

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To be continued next Sunday...

(Again I have changed the narration to third-person. Reason: After reading last week first-person narration, some felt that it was not good and I should revert back to third-person. Now, please take a second more to tell me if I should tell this story in 1st-person or 3rd-person narration! I will stick to that! Please bear with me for this!)