Convergence in planning and implementation of
Major flagship Programmes
A Sub-Committee of National Advisory-cum-Review Committee on BRGF has
been constituted to study the approval systems for flagship programmes and with the
following mandate and also prepare a draft paper.



Identify the major flagship programmes for local area development and document
their outlay.
Study the institutional arrangement for approval in detail including –who prepares
the plan; who approves; who sanctions; and who implements;
Study the opportunities for convergence and suggest measures
1. Introduction:
Participatory planning from the grassroots level upwards led by local
governments will lead to a strong sense of ownership and achieve much of better results
in local development. But with increased specialization and sector-wise thrusts in
development, the respective line Ministries/departments are issuing guidelines for
preparation of sector development plans such as District Health Plan, District Education
Plan, District Water and Sanitation Plan, District Agriculture Development Plan, District
Rural Road Development Plan, etc., Increasing incidence of the preparation of such plans
is causing in the way of preparing horizontal integrated plans.
In order to use resources efficiently and involve the local governments actively,
vertical planning process needs to be transformed into a horizontal planning process,
where local governments and other planning entities work together and plan development
together.
Central Ministries and state government departments are implementing various
rural development programmes through a set of guidelines and by separate set of
administrative and institutional mechanisms. In order to facilitate the horizontal planning
process at various local governments’ level, the present guidelines of sectors departments
needs to be modified to bring uniformity in planning, sanctioning, release of funds,
implementation and monitoring and evaluation of the programmes.
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Interestingly, all these guidelines stipulate inter programme coordination and
convergence. Broad procedures and processes are similar in many ways in these
programmes. But the approval system and implementing agencies are different. The
following are major flagship programmes for local area development.
Major flagship programmes for local area development:
S.N. Name of Flagship
Programmme
1.
BRGF
2.
PMGSY
3.
NREGA (Central)
4.
SGSY (Central)
5.
IAY
6.
SSA (Central)
7.
MDMS
8.
Drinking Water (BN)
9.
RKVY
10. NRHM
* Till September 2008
2008-09
(in crores) (All India)
Allocation
Released
Utilisation
Rs.
Rs.
Rs.
4670.04
3889.76
3615.00
14698.39
15161.98
29939.60
27137.88
2020.00
1989.60
2285.40
5645.77
8795.79
8342.14
13100.00
12625.80
6992.82*
8000.00
6640.31
7275.50
3165.67
2886.80
9191.82
10477.52
10187.94
2. Institutional arrangements for approval and implementation of the plans
under various guidelines of the Ministries:
There are five focused areas to study the institutional arrangements for
implementations of the programmes in accordance with guidelines issued by the
Ministries. They are;
i. Who prepares the plan?
ii. Who approves the plan?
iii. Who accord the sanctions?
iv. Who releases the money and for whom?
v. Who implements and Monitors the plan
The scheme-wise details on the above five items are given in the ANNEXURE.
These details are prepared based on the guidelines given by the central ministries. There
may be slight variations in the Implementation/operational guidelines issued by the
respective state governments. Common procedures/issues are discussed below:
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i. Who prepares the plan?
Almost all guidelines stipulate participatory grassroot level planning for
preparation of sectoral plans. But in reality, based on the allocation of funds for particular
sector in the budget, the planning system at the district level prompts every line
department to prepare tentative proposals on the basis of guidelines. In most of the cases
these proposals are generated at the official level, approved by line departments and then
by a closed collegium of top officials and MLAs, MPs and In-charge Minister of the
district. The main issues in the planning are;
ii.

Plans prepared at lower levels are not integrated properly at the higher level

No revisit of the plan as per release of budget or final approval of the plan

PRIs have not placed at central point while preparing plans

No sufficient time for preparation of plan with peoples’ involvement

Multiple planning units for preparation of the plans without any common platform
Who approves the plan?
At the Central Government level, the State Plan is appraised technically and
financially by the Approval Board/Sanction Committee constituted by the Ministry
concerned and approves it based on state commitment towards its share of funds in the
state budget, if the matching share is required. The technical sanctions are normally
issued by departmental officials based on the administrative sanctions.
iii.
Who accords sanctions and releases the money?
After approval of the plan, normally administrative sanction is accorded by the
District level agencies headed by the district collector/ZP chairperson constituted in
accordance with respective guidelines. But the guidelines do not provide for sufficient
delegation of powers down the line to commence work immediately. GOI releases the
funds directly to the district agencies concerned in two installments during the year under
intimation to the State Govt. But in some schemes like NREGA and BRGF, funds are
first credited to the Consolidated Fund of respective States. If this is the case, the State
Governments are expected to release the funds to the implementing agencies within 15
days from receipt of central funds. The district missions/agencies releases the money
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based on the progress report furnished by field agencies. Certain issues in the release
funds are;

Funds are distributed based on the available budget but not based on the plan
and the plan is also down sized abruptly without consulting planning unit.

Release of state matching share is on paper only. There is no actual transfer
of funds consequently, the required budget is not available as per plan

Whenever the funds are directly credited to Consolidated Fund of the State by
the GOI, there is delay in releasing of funds to the respective implementing
agencies due to which the implementing agencies could not utilize the funds
within the stipulated time.
iv.
Who implements and monitors the plan?
Mission/Project officials specifically constituted for the programme or line
department implement the programme as per the guidelines. A schedule of inspection
which prescribes a minimum number of field visits for each supervisory level functionary
from the State level to the block level is drawn up besides monitoring with prescribed
periodical reports/ returns and also gets appropriate reports and returns prescribed. Issues
in implementation and monitoring are;

Officers deputed to the project agencies are not professionals and have no idea
on the project

Posts are kept vacant for long duration due to ban on recruitment

There is no coordination between the project staff and line departments

There are no field visits by the supervisory level functionaries

No follow up action on the observation made by the monitoring officials and
the responsive mechanism is zero

All the line departments have not been brought under the fold of social audit.
3. Certain issues in achieving convergence:
1. Even though all the guidelines stipulate inter programme coordination and
convergence, this inter departmental consultation is a rare phenomenon. There is
reluctance among the sectoral departments to commit funds for projects
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emanating from other plans. There is a fear of losing control over ‘their’
resources. This is seen not only among officials but also non-officials. There is
some misunderstanding that needs to be cleared. Consensus at the state level
among the related departments is the initial step which needs to be passed on to
their respective departments at the district level.
2. In the absence of institutional platform for the convergence, departmental
functionaries are raising questions on how to monitor that the planned
convergence takes place as the resources may be under the control of some of the
agencies outside the fold of the main programme seeking convergence.
3. There is a feeling, not very rational through, that convergence at state level
through State Convergence Plan is more feasible than at district or lower level. On
the other hand, there is a school of thought which thinks otherwise. Many
convergences pertaining to inter-dept cooperation may not be amenable to GP
level convergence. It is necessary work out a blend of approaches.
4. Empowered Authority: to ensure inter-departmental coordination and resource
pooling and facilitate convergence at the district level, as the line departments are
under different line of command and control. District Collector should be notified
and given a mandate and the required authority for accomplishing the
convergence.
5. Differences in subsidies etc.: There are differences in norms of subsidy/target
groups and accounting procedures which bring in conflicts and complexities in
the process of planning for convergence. Harmonisation of guidelines for
convergence is therefore needed.
However, convergence itself can bring certain issues in its wake. A few
are listed below:
1. There are competing demands for funds from other departments (in convergence
mode) that are starved of funds without any reciprocal dovetailing
process/arrangements. In certain cases, budgetary allocation under state plan has
been diverted for some other purposes.
2. Double recording of works is a major problem in the convergence. At present
there no mechanism to cross check the records of various departments/agencies.
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3. Sometimes it is very difficult to get the information on funds availability.
Committed fund flow under various sectors is either not known or there is an
unwillingness to provide the details without which convergence exercise may not
be feasible.
In order to achieve convergence in implementation of rural development
programmes, the following measures may be taken.
i.
Changes in Guidelines: The Ministries concerned should identify the areas of
convergence and bring about appropriate amendment to guidelines and circulars.
ii.
Flexibility: Certain amount of flexibility may be needed for convergence to work
and this has to be approved at district level committee or authority.
iii.
PRIs as Centre point: Recently, the Government of India has issued guidelines
on SAKSHARA BHARATHI (on Adult Education) bringing the Panchayat Raj
Institutions as central point in implementation of the programme. In the long run,
all the Ministries should use this type of well established Institutional Platform to
achieve convergence.
iv.
Integrated and comprehensive Training: The guidelines of different ministries
have provision for orgainising training programmes for the functionaries. This
compartmentalized system of training does not recognize the vital link between
different programmes. Hence the training should be designed in such a way that
the functionaries equipped with necessary skills to achieve convergence in
implementation of the programmes by mobilizing man power and resources of
related departments. Training fund of different programmes needs to be pooled
for the integrated and holistic training programmes.
v.
Accounting system and recording of works: Appropriate monitoring
mechanism should be put in place to avoid double recording work in different
programmes for the same work. Accounting system should also be modified
accordingly.
Certain issues/constraints in implementation of the flagship programmes are
discussed below:
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National Rural Employment Guarantee Scheme (NREGS):
Issues:
 There is a general feeling that post-office may not be an ideal institution to distribute
the wages. Several problems including the possibility of corruption are observed.

Nature of works being adopted appeared ad-hoc and without sound reasoning of long
term value being generated and there did exist complaints of delayed payments and
procedural delays.

Clashing with agricultural season and proper articulation of demand and supply is
main problem in its implementation.

Weak linkage with the line departments in implementation of the projects

No proper system for purchase of materials and procurement of services of skilled
labour
Suggestion for improvement:

Payments through Smart Cards appear to be the best solution, since payment through
Post office or SHGs is not found to be smooth.

Instead of inducting large number of officials, Gram Panchayats may be given more
powers for execution and effective supervision, where they have not been given such
powers.

Need to expand permissible items of work like Housing, Compost / soak pits and •
Services like Cleaning public places, Care of the elderly chronically ill, Bare foot
extension workers, Focusing on skill development for self and wage employment

NREGS may be extended to educated youth (post metric) for mobilizing them in
creating social awareness about literacy, health care, AIDS, sanitation, drinking
water, balanced nutritional diet, anti liquor, importance about marriage, family
planning and care of the child and aged.
SARVA SIKSHA ABHIYAN:
Issues:
 No linkage with district plan and down the line grassroot level plans due to poor
integration of the plan
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
Funds are distributed based on the available budget but not based on the plan and
the plan is also down sized abruptly without consulting planning unit.

Allied sectors are not taken into consideration while preparing the plan

There is no coordination between School Education and Project Directorate of
SSA but dual role has been given to the Mandal Education Officer at the Mandal
level

Monitoring mechanism is very in effective as there are no consultants at the
Mandal and district level.
MID DAY MEAL SCHEME (MDM):
MDM is the world’s largest school lunch programme covering about 120 million
children.
Issues:

Absence of a base line survey. This resulted in adoption of incorrect enrolment by
Programme Approval Board for sanction of annual work plan and budget. All this
resulted in excess or insufficient allocation of food grains and financial assistance
from the government.

Absence of regular inspection of the schools by the state monitoring committees "the
quality of the meals in terms of hygiene, caloric content, micro-nutrient and
supplements suffered".

Monitoring mechanisms envisaged in the scheme guidelines were yet to be
established. The nodal department had also not carried out any impact assessment to
ascertain the reasons for non-achievement of the primary objectives of the scheme
and to identify remedial measures that could be adopted to improve implementation.

Mismatch between enrolment, attendance, children availing MDM, utilization of
cooking assistance and lifting of food-grains

Issue of lifting and reaching food grains to schools in difficult areas

Inadequate provision for appointment of cooks resulting in teachers/students engaged
in cooking and serving in some states

Inadequacy of quality control of food due to insufficient cooking grant per head
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
There is no contribution from the community to strengthen the programme

Inadequacy of monitoring and management structure in many states
SUGGESTIONS FOR IMPROVEMENT:

Ministry should ensure that annual work plan and budget of states are examined by
Programme Approval Board, especially with reference to enrolment data which is
crucial for allotment of food grains and financial assistance by the Centre.

The nodal department should undertake an impact assessment to review the
implementation of the scheme and identify causes for lack of improvement in enrolment,
attendance and retention levels so as to enable corrective action where necessary to
achieve the objectives of the scheme.
PRIME MINISTER GRAM SADAK YOJANA
Issues:
 Problems in land acquisition/compensation/Forest clearance for laying roads

The state governments should provide budget for Maintenance of the road
constructed under PMGSY for a period of 5 years on continuous basis. Even
though budget provision is made in the state budget, actual release is not taking
place due to various reasons.

No dedicated staff exclusive of this project has been appointed as mandated by
the guidelines

Online monitoring system needs to be strengthened
Suggestions:

Separate revolving fund may be created for attending to repairs and maintenance
of roads after expiry of initial five years

Maintenance grants should be released to PRIs

There should not be any delay in release of money to the contractor who has done
the work

Local people should be engaged for construction of roads in that area
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DRINKING WATER SUPPLY
Issues:

Realistic identification of all problem habitations

Incorrect prioritization of works, and other cases of wasteful and unfruitful
expenditure.

Time and cost overrun, non-completion/ delayed completion of works, Nonfunctional/ defunct works

Quality of water and sustainability of the resources
Suggestion for improvement:

To be addressed with ground level approach as the efficacy of pouring money into
schemes and achievement of some numbers (coverage of problem habitation & works
executed) disregarding ground situation will remain questionable for addressing the
drinking water needs of the problem habitations.
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