STANDING COMMITTEE ON RURAL DEVELOPMENT

(2019-2020)

4 SEVENTEENTH LOK SABHA

MINISTRY OF RURAL DEVELOPMENT

(DEPARTMENT OF RURAL DEVELOPMENT)

DEMANDS FOR GRANTS

(2020-21)

FOURTH REPORT

LOK SABHA SECRETARIAT

NEW DELHI
FOURTH REPORT

STANDING COMMITTEE ON RURAL DEVELOPMENT

(2019-2020)

(SEVENTEENTH LOK SABHA)

MINISTRY OF RURAL DEVELOPMENT

(DEPARTMENT OF RURAL DEVELOPMENT)

DEMANDS FOR GRANTS

(2020-21)

Presented to Lok Sabha on 03.03.2020

Laid in Rajya Sabha on 03.03.2020

LOK SABHA SECRETARIAT

NEW DELHI

March, 2020/Phalguna, 1941 (Saka)

CRD No. 158

Price : Rs

© 2020 BY LOK SABHA SECRETARIAT

Published under Rule 382 of the Rules of Procedure and Conduct of Business in Lok Sabha (Thirteenth
Edition) and Printed by __________________.
CONTENTS Page
No
COMPOSITION OF THE COMMITTEE …………………………………………………… (iii)
INTRODUCTION …………………………………………………………………………….. (iv)
REPORT
PART-I
NARRATION
I. Introduction
(A) Department of Rural Development - Mandate and Role 1
(B) Major schemes of Department of Rural Development 2
II. Demands for Grants (2020-21) of the Departmental of Rural Development 2
III. Appraisal of Budgetary Expenditure (2019-20) 5
IV. Scrutiny of Demands for Grants (2020-21) 10
V. Unspent Balances 15
1 Quantum 15
2 Steps to Mitigate 16
VI. Schematic Analysis 18
(A) Mahatma Gandhi National Rural Employment Guarantee Act (MGNREGA) 18
1 Scope and Vision of the Programme 18
2 Financial Performance 19
3 Physical Performance 21
4 Issues related to wages 24
5 Payment of Unemployment allowances 25
6 Ambit of work taken up under MGNREGA 26
7 Ground level Monitoring/Audit Mechanism 27
(B) Pradhan Mantri Awaas Yojana - Gramin (PMAY-G) 29
1 Aim and Objective 29
2 Physical Progress 30
3 Financial Expenditure 31
4 Incompletion of Houses 32
5 Delay in release of installments 34
6 Design / Quality of Construction 34
7 Awaas Plus 35
8 Unit Assistance 36
9 Monitoring Aspect 37
(C) Pradhan Mantri Gram Sadak Yojana (PMGSY) 38
1 Brief 38
2 Target Achievement - Slow pace of work 40
3 Financial Progress 42
4 Quality / Climate Aspects 43
5 Fixation of Accountability / Issues of Tender 44
6 Future of the Yojana - PMGSY - II & PMGSY - III 44
7 Monitoring and Inspection 46
(D) Deendayal Antyodaya Yojana - National Rural Livelihood Mission DAY-NRLM 47
1 An Insight 47
2 Components and Sub - Schemes 48
3 Fund Allocation / Utilization 49
4 Physical Performance 51
5 Universal Social Mobilization through Self Help Groups (SHGs) 53
6. Role of Banks in the implementation of DAY-NRLM and Setting up of RSETIs 54
7. Deen Dayal Upadhyaya Grameen Kaushalaya Yojana (DDU-GKY) 56
8 Monitoring Aspect 60
(E) National Social Assistance Programme (NSAP) 62
1 Background 62
2 Sub-Schemes under the Programme and Implementation 62
3 Physical Performance in terms of goals set 63
4 Financial Performance 64
(F) Shyama Prasad Mukherjee Rurban Mission (SPMRM) 65
1 Origin and Vision 65
2 Achievements made so far - Physical and Financial 66
3 Issues under the Mission 67
(G) Saansad Aadarsh Gram Yojana (SAGY) 68
1 A Visionary Approach 68
2 Progress so far 69
3 Steps taken by Department of Rural Development (DoRD) 70
VII. District Development Coordination and Monitoring Committee (DISHA) 71
VIII. Impetus to the pace of progress 73

PART – II

Observations/Recommendations the Committee……………………………….. 76

ANNEXURES
i. Minutes of the Eighth Sitting of the Committee held on 12 February, 2020 93
ii. Extracts of Minutes of the Eleventh Sitting of the Committee held on 02 March, 2020 96
COMPOSITION OF THE STANDING COMMITTEE ON RURAL DEVELOPMENT
(2019-2020)

Shri Prataprao Jadhav -- Chairperson

MEMBERS
Lok Sabha
2. Shri Sisir Kumar Adhikari
3. Shri A.K.P Chinraj
4. Shri Rajveer Diler
5. Shri Sukhbir Singh Jaunapuria
6. Dr. Mohammad Jawed
7. Prof. Rita Bahuguna Joshi
8. Shri Nalin Kumar Kateel
9. Shri Mohammad Azam Khan
10. Shri Narendra Kumar
11. -Vacant- *
12. Shri Janardan Mishra
13. Shri Kinjarapu Ram Mohan Naidu
14. Shri B.Y. Raghavendra
15. Shri Talari Rangaiah
16. Smt. Gitaben Vajesingbhai Rathva
17. Smt. Mala Rajya Laxmi Shah
18. Shri Vivek Narayan Shejwalkar
19. Shri Brijbhushan Sharan Singh
20. Shri Indra Hang Subba
21. Shri K. Sudhakaran
Rajya Sabha
22. Shri Ritabrata Banerjee
23. Shri Manas Ranjan Bhunia
24. Shri Shamsher Singh Dullo
25. Shri Nazir Ahmed Laway
26. Shri Naranbhai J. Rathwa
27. Shri A. K. Selvaraj
28. Shri Ram Shakal
29. Shri Ajay Pratap Singh
30. Shri Lal Sinh Vadodia
31. -Vacant-
SECRETARIAT

1. Shri D. R. Shekhar - Joint Secretary

2. Shri S. Chatterjee - Director
3. Smt. Emma C. Barwa - Additional Director
4. Shri Inam Ahmed - Assistant Executive Officer

*Vacancy created due to sad demise of Shri Baidyanath Prasad Mahto on 28.02.2020

(iii)
INTRODUCTION

I, the Chairperson of the Standing Committee on Rural Development (2019-2020) having been
authorised by the Committee to submit the Report on their behalf, present the Fourth Report on Demands
for Grants (2020-21) of the Ministry of Rural Development (Department of Rural Development).

2. Demands for Grants have been examined by the Committee under Rule 331E (1) (a) of the Rules
of Procedure and Conduct of Business in Lok Sabha.

3. The Committee took evidence of the representatives of the Department of Rural Development
(Ministry of Rural Development) on 12 February, 2020.

4. The Report was considered and adopted by the Committee at their sitting held on
02 March, 2020.

5. The Committee wish to express their thanks to the officials of the Ministry of Rural Development
(Department of Rural Development) for placing before them the requisite material and their considered
views in connection with the examination of the subject.

6. The Committee would also like to place on record their deep sense of appreciation for the
invaluable assistance rendered to them by the officials of Lok Sabha Secretariat attached to the Committee.

NEW DELHI; PRATAPRAO JADHAV

02 March, 2020 Chairperson,
12 Phalguna, 1941 (Saka) Standing Committee on Rural Development

(iv)
1

REPORT

PART - I

NARRATION

I. INTRODUCTION

A. Department of Rural Development - Mandate and Role

Ministry of Rural Development plays a pivotal role in the welfare and

development of rural public, with the main focus on skilling of rural youth, increasing

livelihood opportunities, empowering rural women, providing social safety net and

infrastructure development. In the past year, apart from strengthening the

implementation structures in the various ongoing rural development programmes,

MoRD's primary objective is the sustainable development of rural areas, by adopting

multi-pronged strategies to address rural poverty and improve the economic well-being

of the people.

Presently, the Ministry of Rural Development consists of two Departments,

namely, Department of Rural Development and Department of Land Resources. The

Department of Rural Development implements schemes for generation of employment

both self employment and wage employment, social assistance to the destitute,

provision of housing, Rural Roads, and natural resource management activities. Apart

from this, Department provides the support services and other quality inputs such as

assistance for strengthening of DRDA Administration, Training & Research, Human

Resource Development, etc. for the proper implementation of programmes.

2

B. Major Schemes under the purview of Department of Rural Devlopment

(i) Mahatma Gandhi National Rural Employment Guarantee Act (MGNREGA)

(ii) Pradhan Mantri Awaas Yojana - Gramin (PMAY-G)

(iii) Pradhan Mantri Gram Sadak Yojana (PMGSY)

(iv) Deendayal Antyodaya Yojana - National Rural Livelihood Mission DAY-

NRLM

(v) National Social Assistance Programme (NSAP)

(vi) Shyama Prasad Mukherjee Rurban Mission (SPMRM)

(vii) Saansad Aadarsh Gram Yojana (SAGY)

The present report examines the Demands for Grants made by the Department

of Rural Devlopment for the Financial Year 2020-21.

II. Demands for Grants (2020-21) of the Department of Rural Development

The Department of Rural Development (Ministry of Rural Development) have

been allocated a fund of Rs. 120147.19 crore vide demand no. 85 laid on the table of

Lok Sabha on 10 February, 2020. The detailed Demands for Grants of the Department

of Rural Development is as under:-

3

Statement A

Brief summary of the Detailed Demand for Grants of the

Department of Rural Development
(Rs. in crore)

Sl. Major Head Budget Revised Budget Estimates 2020-2021

No. Name of the Scheme of Account Estimates, Estimates, Revenue Capital/
2019-2020 2019-2020 Loan Total
1 2 3 4 5 6 7 8
SCHEMES

SPECIAL PROGRAMMES FOR RURAL DEVELOPMENT

1 Aajeevika-National Rural Livelihood Mission(NRLM) 2501 2522.40 2522.40 1867.33 ... 1867.33
3601 5583.75 5583.75 6422.44 ... 6422.44
3602 16.85 16.85 42.27 ... 42.27
TOTAL - SPECIAL PROGRAMMES FOR 8123.00 8123.00 8332.04 ... 8332.04
RURAL DEVELOPMENT
RURAL EMPLOYMENT
2 Mahatma Gandhi National Rural Employment
Guarantee Scheme (MGNREGS) 2505 42550.29 49852.10 43255.29 .. 43255.29
3601 17444.71 20928.16 17644.71 .. 17644.71
3602 5.00 221.55 600.00 .. 600.00
TOTAL - Rural Employment 60000.00 71001.81 61500.00 .. 61500.00
HOUSING
3 Rural Housing( IAY)- Erstwhile 2216 2621.00 2621.00 2921.00 .. 2921.00
PMAY(G) 3601 14115.00 14115.00 14529.00 .. 14529.00
3602 0.00 0.00 0.00 .. 0.00
Interest Subsidy 2216 384.00 384.00 100.00 .. 100.00
TOTAL - Housing 17120.00 17120.00 17550.00 .. 17550.00
OTHER RURAL DEVELOPMENT PROGRAMMES:
4 Grants to National Institute
of Rural Development (NIRD) 2515 89.65 89.65 113.65 .. 113.65
5 Assistance to CAPART 2515 24.00 19.07 0.00 .. 0.00
6 Management Support to RD Programme
& strengthening district planning process 2515 340.62 340.62 357.46 .. 357.46
7 BPL Survey 2515 1.00 1.00 0.01 .. 0.01
8 Shyama Prasad Mukherjee RURBAN Mission 2515 103.52 22.12 37.00 .. 37.00
3601 579.63 207.23 476.00 .. 476.00
3602 36.85 18.00 27.00 .. 27.00
TOTAL - OTHER RURAL DEVELOPMENT 1175.27 697.69 1011.12 .. 1011.12
PROGRAMMES
ROAD & BRIDGES
9 Pradhan Mantri Gram Sadak Yojana 3054 79.21 74.21 135.72 .. 135.72
3601 17215.79 12895.86 16884.28 .. 16884.28
3602 5.00 0.00 700.00 .. 700.00
(PMGSY) - Rural Roads 17300.00 12970.07 17720.00 .. 17720.00
10 National Social Assistance Programme 2235 24.56 19.22 21.48 .. 21.48
3601 8189.99 8196.17 8190.00 .. 8190.00
3602 65.45 64.61 65.44 .. 65.44
TOTAL- NSAP 8280.00 8280.00 8276.92 .. 8276.92
4

Statement A(contd.)

(Rs. In crore)

Sl. Name of the Scheme Major Head Budget Revised Budget Estimates 2020-2021

No. of Account Estimates, Estimates, Revenue Capital/

2019-2020 2019-2020 Loan Total

1 2 3 4 5 6 7 8

11 Provision for North Eastern Region and Sikkim ..

1. Aajeevika-National Rural Livelihood Mission(NRLM) 2552 901.00 901.00 878.00 .. 878.00

2. Mahatma Gandhi National Rural Employment

Guarantee Scheme (MGNREGS) 2552 0.00 0.00 0.00 .. 0.00

3. Rural Housing(IAY)/PMAY(G) 2552 1880.00 1355.00 1950.00 .. 1950.00

4. Grants to National Institute

of Rural Development (NIRD) 2552 10.35 10.35 10.35 .. 10.35

5. Assistance to CAPART 2552 0.00 0.00 0.00 .. 0.00

6. Management Support to RD Programme

& strengthening district planning process 2552 10.00 10.00 10.00 .. 10.00

7. BPL Survey 2552 0.00 0.00 0.00 .. 0.00

8. Pradhan Mantri Gram Sadak Yojana

(PMGSY) - Rural Roads 2552 1700.00 1100.00 1780.00 .. 1780.00

9. National Social Assistance Programme 2552 920.00 920.00 920.00 .. 920.00

10. Shyama Prasad Mukherhee RURBAN Mission 2552 80.00 52.65 60.00 .. 60.00

TOTAL - NE Region 5501.35 4349.00 5608.35 .. 5608.35

12 Grameen Vikas Bhawan 100.00 54.90 0.00 100.00 100.00

TOTAL - SCHEME EXPENDITURE 117599.62 122596.47 119998.43 100.00 120098.43

NON-SCHEME EXPENDITURE **

1. Headquarter's Establishment of

Department of Rural Development 3451 47.57 52.53 48.76 .. 48.76

TOTAL - NON-SCHEME 47.57 52.53 48.76 .. 48.76

**w.e.f 2017-18 the distinction between Plan and Non- Plan has been done away.
5

III. An Appraisal of Budgetary Expenditure during the last three Financial Years 2017-18, 2018-19 & 2019-20
6

3.2 For the financial year 2019-20 Rs. 117499.62 crore was allocated to the
Department of Rural Development at BE stage for the Centrally Sponsored Schemes,
which was increased to Rs. 122541.57 crores at the RE stage. Till 31.01.2020, Rs.
101410.50 crores has been the actual expenditure. While explaining the reasons for
the upward revision of the funds sought by Department of Rural Development (DoRD)
at RE stage in 2019-20, the DoRD have submitted in its written reply as under:-
"In respect of the schemes of the Department of Rural Development, RE was
increased in case of MGNREGA, the justification is under:-
Mahatma Gandhi NREGA is a demand driven wage employment scheme and
release of the funds to the States/UTs is a continuous process. The Ministry
seeks additional funds at RE stage based on demand for work in the field. The
upward revision of the funds under Mahatma Gandhi NREGA at RE stage in
2019-20 has been due to the following reasons:
 To ensure timely wage payment to the wage seekers which is a statutory
responsibility of the Central Government.
 To pay the pending Fund Transfer Orders(FTOs)/wage liabilities of the
States/UT and enable the States to pay wages of the workers to run the
programme till 31st March, 2020.
 To pay the pending liabilities of Material & Admin. component as well as
to meet the expenditure on Material & Admin component for the remaining
period i.e. up to March, 2020.

The actual demand at RE stage in respect of MGNREGA was 80,000.00 crore.

However Rs. 71,001.81 crore was allocated at RE stage."

3.3 Responding to the query of the Committee regarding the reasons for the slow
pace of performance of schemes so far during 2019-20, the DoRD have furnished their
reply as below:-
"MGNREGA:-
Mahatma Gandhi NREGA is a demand driven programme. The pace of
performance of Mahatma Gandhi NREGA is closely linked to the
demand for work.

PMAY-G:-
Sanctions %
st nd rd th
Target Out of 1 2 3 4 comple-
S. MoRD fixed by GEO install- install- install- install- ted
No. State Name Target States Registered Tagged ment ment ment ment Completed*
ARUNACHAL
1 PRADESH 7500 7500 1706 37 0 0 0 0 0 0.00
2 ASSAM 200000 200000 200010 165917 160326 125384 39312 0 10148 5.07
3 BIHAR 800000 800000 835813 787066 637066 140512 35971 0 54185 6.77
4 CHHATTISGARH 151100 151100 231360 151094 134625 381 6 0 198 0.13
5 GOA 0 0 0 0 0 0 0 0 0
7

6 GUJARAT 107100 107100 78583 88336 68095 21523 3633 0 8881 8.29
7 HARYANA 0 0 0 0 0 0 0 0 0
HIMACHAL
8 PRADESH 900 900 845 786 766 467 83 0 114 12.67
JAMMU AND
9 KASHMIR 52500 52500 64894 33979 8024 152 5 0 70 0.13
10 JHARKHAND 322000 322000 328040 290838 280445 172818 19904 0 54917 17.05
11 KERALA 0 0 0 0 0 0 0 0 0
MADHYA
12 PRADESH 832100 394911 328570 373214 367187 319699 218445 84460 128697 15.47
13 MAHARASHTRA 289700 289700 41628 241360 194445 89443 45221 5689 22493 7.76
14 MANIPUR 8900 8900 9976 186 0 0 0 0 0 0.00
15 MEGHALAYA 17200 17200 16074 6399 199 0 0 0 35 0.20
16 MIZORAM 1500 0 0 0 0 0 0 0 0 0.00
17 NAGALAND 5900 5900 5 0 0 0 0 0 0 0.00
18 ODISHA 565000 558481 578911 536814 524536 366454 216693 80034 158939 28.13
19 PUNJAB 10000 10000 304 1558 2 0 0 0 0 0.00
20 RAJASTHAN 364000 364000 327740 363774 346562 201960 49765 0 49049 13.48
21 SIKKIM 0 0 0 0 0 0 0 0 0
22 TAMIL NADU 200000 200000 66680 53472 29547 11627 5603 1924 3122 1.56
23 TRIPURA 28838 28838 19766 17891 12924 8402 2467 0 1029 3.57
UTTAR
24 PRADESH 178900 178900 165841 164693 162492 143517 97101 0 100564 56.21
25 UTTARAKHAND 0 0 0 0 0 0 0 0 0
26 WEST BENGAL 830000 830000 790849 819520 751368 136865 2402 0 27788 3.35
27 A & N 400 400 0 400 80 53 34 0 36 9.00
28 D & N HAVELI 0 0 0 0 0 0 0 0 0
29 DAMAN AND DIU 0 0 0 0 0 0 0 0 0
30 LAKSHADWEEP 58 0 0 0 0 0 0 0 0 0.00
31 PUDUCHERRY 0 0 0 0 0 0 0 0 0
ANDHRA
32 PRADESH 47800 0 0 0 0 0 0 0 0 0.00
33 KARNATAKA 86000 0 0 0 0 0 0 0 0 0.00
34 TELANGANA 0 0 0 0 0 0 0 0 0
35 LADAKH 0 0 0 0 0 0 0 0 0
Total 5107396 4528330 4087595 4097334 3678689 1739257 736645 172107 620265 12.14
*As reported on AwaasSoft as on 28.1.2020
As per para 5.6.2 of the Framework of Implementation of PMAY-G, the
construction of house should be completed within 12 months from the
date of sanction.
Reasons for slow pace of performance: Some of the reasons for
slow pace of performance are :

i. Imposition of Model Code of Conduct from 9th March, 2019 till

23rd May 2019 resulted in delay in start of the implementation of
the PMAY-G. It is worthwhile to mention that the work started
from 1st June, 2019.
ii. Landlessness among beneficiaries – 3.26 lakh out of 4.23 lakh
beneficiaries are yet to be provided land by respective state
governments.
iii. Beneficiaries unwilling to construct the houses
iv. Very heavy rains, floods in many parts of the Country
8

v. Migration – both temporary and permanent.

a. Delayed houses – Houses exceeding 12 months

b. Larger than the prescribed house size
c. Death of beneficiary
d. Non-availability of construction material, especially sand
e. Land dispute
f. Natural calamity

PMGSY:-
The States of Punjab, Gujarat, Rajasthan, Haryana, Karnataka and Tamil
Nadu have already provided connectivity to majority of eligible
habitations. The States left with substantial number of habitations for
providing connectivity are mainly North-Eastern and Himalayan States as
also the States of Andhra Pradesh, Bihar, Chhattisgarh, Madhya
Pradesh, Odisha and West Bengal. The reasons for delay in achieving
the targets in these States can be attributed to the following reasons :-
(i) Historically disadvantaged in terms of rural connectivity.
(ii) Most remote habitations are yet to be connected;
(iii) Short working season;
(iv) Inadequate execution and contracting capacity;
(v) Scarcity of construction material;
(vi) Difficult terrain;
(vii) Unpredictable adverse weather in recent years.

The Ministry is reviewing the position continuously and States are

provided requisite assistance to achieve the target of 100% connectivity
to all eligible and feasible habitations at the earliest possible.
NRLM:- There has been shortfall in the number of Village Organisations
promoted against the targets due to various reasons. There were initial
delays due to election code of conduct being in place. There have been
delays in a few states in release of funds from the state treasury to the
State Rural Livelihoods Mission. This has caused delays in release of
capitalized support funds to the community institutions. However, efforts
have been made to achieve the set target on the promotion of Village
Organisations and the release of community funds through regular
follow-up with underperforming states. To address the state specific
issues, review cum planning workshops have been conducted during the
month of January with all states in order to discuss reasons for the
shortfalls and plan for achieving the targets to the extent possible in the
remaining period of the financial year. Communications are regularly
sent at senior level to States for ensuring timely release of funds to the
SRLMs.

Progress till December 2019 on promotion of VO is 46% and release of

Community Fund (RF & CIF) is 41%.
9

DDU-GKY:-The performance during FY 2019-20 is satisfactory.

Against a total target of 250000 a total of 185749 have been trained.

RSETI:- The performance during FY 2019-20 is satisfactory. Against

a total target of 386129 a total of 281461 have been trained.

NSAP:- States/UTs have adopted different rates and criteria in

identifying the beneficiaries and extending top ups. Delays in submission
of Monthly progress reports and Utilization Certificate by the State/UT
Governments are some of the challenges and constraints faced by the
Department of Rural Development. On consistent basis MoRD is
advising the States/UTs for adoption of transaction based NSAP-MIS,
however, response so far has been slow.

RURBAN:- As the Mission hinges on both Convergence and Critical Gap

Fund (CGF) component, the focus of the States initially has been
preparation and approval of Integrated Cluster Action Plans (ICAPs)
which outlined the requirements of the Clusters. Subsequently, First
Installment of CGF was released to the States which enabled them to
prepare a Detailed Project Reports (DPRs) and utilize the fund released
.
While the preparation of DPR is a time taking process, States have
meanwhile invested on the convergence themes of the Clusters.

With the active perusal of the Ministry through regular handholding and
conduct of workshops, the mission has picked up pace with the states
actively furnishing the DPRs and effectively increasing the utilisation of
funds on CGF activities.

As the release of Second and Third installment of CGF depends on fund

utilization on ground and preparation of Spatial plans, the states/UTs
have been consistent in speeding up of activities undertaken which are
being monitored through Monthly Progress Reports and timely UC
submissions.
10

IV. Scrutiny of Demands for Grants (2020-21)

Statement-B

Statement showing percentage increase in various Schemes / Programmes during 3 years

(Rs. in crores)

Sl. Name of the Scheme 2016-17 2017-2018 2018-2019 2019-2020 2020-2021

No. % increase % increase % increase % increase

Outlay Outlay over Outlay over Outlay over Outlay over

2016-2017 2017-2018 2018-2019 2019-2020

1 2 3 4 5 6 7 8 9 10 11

1 Aajeevika-National Rural Livelihood Mission

(NRLM) 3000.00 4500.00 50.00% 5750.00 27.78% 9024.00 56.94% 9210.04 2.06%
2 Mahatma Gandhi National for Rural
Employment Guarantee Scheme 38500.00 48000.00 24.68% 55000.00 14.58% 60000.00 9.09% 61500.00 2.50%
3 Rural Housing (Indira Awaas Yojana)/PMAY-G 15000.00 23000.00 53.33% 21000.00 -8.70% 19000.00 -9.52% 19500.00 2.63%
4 Pradhan Mantri Gram Sadak Yojana 19000.00 19000.00 0.00% 19000.00 0.00% 19000.00 0.00% 19500.00 2.63%
5 National Institute of Rural
Development (NIRD) 50.00 50.00 0.00% 75.00 50.00% 100.00 33.33% 124.00 24.00%
6 Council for Advancmant of People's
Action & RuralTechnology (CAPART) 20.00 20.00 0.00% 24.00 20.00% 24.00 0.00% 0.00 -100.00%
7 Management support to RD programmes
and strengthening district planning process* 255.00 250.00 -1.96% 254.40 1.76% 350.62 37.82% 367.46 4.80%
8 BPL Survey 375.00 80.18 -78.62% 75.70 -5.59% 1.00 -98.68% 0.01 -99.00%
9 National Social Assistance Programme 9500.00 9500.00 0.00% 9975.00 5.00% 9200.00 -7.77% 9196.92 -0.03%
10 Shyama Prasad Mukherjee RURBAN Mission 300.00 1000.00 233.33% 1200.00 20.00% 800.00 -33.33% 600.00 -25.00%
11 Non Scheme Sectt. 35.00 42.45 21.29% 44.57 4.99% 47.57 6.73% 48.76 2.50%
12 Grameen Vikas Bhawan 0.00 5.25 0.00% 5.25 0.00% 100.00 1804.76% 100.00 0.00%
TOTAL - RURAL DEVELOPMENT 86035.00 105447.88 22.56% 112403.92 6.60% 117647.19 4.66% 120147.19 2.12%
11

Department of Rural Development Statement-C

Statement showing Budget Estimates, Revised Estimates and Actual Expenditure from 2017-2018 to 2019-2020 and BE 2020-2021

(Rs. In crores)

Sl. Name of the Scheme Annual Plan 2017-2018 Annual Plan 2018-2019 Annual Plan 2019-2020 B.E.
B.E. R.E. Actual B.E. R.E. Actual B.E. R.E. Actual Expenditure
No. Expenditure Expenditure Upto 17.01.2020 2020-2021
with Authorization

1 2 3 4 5 6 7 8 9 10 11 12

Centrally Sponsored Schemes

Mahatma Gandhi National Rural Employment
1 Guarantee Scheme 48000.00 55167.06 55166.06 55000.00 61830.09 61829.55 60000.00 71001.81 57208.46 61500.00

2 National Rural Livelihood Mission- Aajeevika 4500.00 4350.83 4327.20 5750.00 5783.50 5783.48 9024.00 9024.00 6458.16 9210.04

3 Pradhan Mantri Awaas Yojana-Gramin 23000.00 22832.31 22572.29 21000.00 19600.00 19307.95 19000.00 18475.00 15379.44 19500.00

4 Pradhan Mantri Gram Sadak Yojana 19000.00 16900.00 16862.12 19000.00 15500.00 15417.55 19000.00 14070.07 8984.63 19500.00

5 National Social Assistance Programme 9500.00 8744.42 8694.22 9975.00 8467.46 8418.47 9200.00 9200.00 6843.15 9196.92

6 Shyama Prasad Mukherjee RURBAN Mission 1000.00 600.00 553.25 1200.00 451.03 432.61 800.00 300.00 199.35 600.00

Central Sector Schemes

7 Grants to National Institute of Rural Dev. 50.00 53.47 50.00 75.00 75.00 72.17 100.00 100.00 68.41 124.00

8 Assistance to C.A.P.A.R.T. 20.00 16.48 8.19 24.00 20.41 16.34 24.00 19.07 8.00

9 Management support to RD Programmes and

strengthening district planning process 250.00 250.00 212.99 254.40 238.52 200.23 350.62 350.62 75.11 367.46

10 SECC Census 80.18 80.18 72.16 75.70 386.95 375.01 1.00 1.00 0.00 0.01

Total 105400.18 108994.75 108518.48 112354.10 112352.96 111853.36 117499.62 122541.57 95224.71 119998.43
12

Department of Rural Development Statement-c(cont.)

Statement showing Budget Estimates, Revised Estimates and Actual Expenditure

(Rs. In crores)

Sl. Name of the Scheme Annual Plan 2017-2018 Annual Plan 2018-2019 Annual Plan 2019-2020 B.E.
B.E. R.E. Actual B.E. R.E. Actual B.E. R.E. Actual Expenditure
No. Expenditure Expenditure Upto 17.01.2020 2020-2021
with Authorization

1 2 3 4 5 6 7 8 9 10 11 12

NON SCHEME EXPENDITURE

1 Headquarter's Establishment of

Department of Rural Development 42.45 42.45 41.15 44.57 45.71 45.01 47.57 52.53 40.55 48.76

Total (Non Scheme Expenditure) (RD) 42.45 42.45 41.15 44.57 45.71 45.01 47.57 52.53 40.55 48.76

2 Grameen Vikas Bhawan ( Capital Section) 5.25 5.25 0.00 5.25 5.25 5.00 100.00 54.90 54.90 100.00

Total (Capital Section) (RD) 5.25 5.25 0.00 5.25 5.25 5.00 100.00 54.90 54.90 100.00
13

The analysis evidently reveals that for the Centrally Sponsored Scheme the RE
for 2019-20 was Rs. 122541.57 crore, still BE for 2020-21 is 119998.43 crore. In
2019-20, 4.66% increase in outlay over 2018-19 was seen, however, in 2020-21 BE,
only 2.12% increase over 2019-20 outlay could be witnessed. The major schemes
such as Mahatma Gandhi National Rural Employment Guarantee Act (MGNREGA),
Pradhan Mantri Awaas Yojana - Gramin (PMAY-G), Pradhan Mantri Gram Sadak
Yojana (PMGSY) and Deendayal Antyodaya Yojana - National Rural Livelihood
Mission DAY-NRLM also shows meagre increase of 2.50%, 2.63%, 2.63% and 2.06%
respectively in the BE of 2020-21 as compared to BE of 2019-20, while a reduction of
25% funds for Shyama Prasad Mukherjee Rurban Mission (SPMRM) also gets
reflected.

4.2 Replying to the query raised by the Committee regarding only 2.12% increase
in BE for 2020-21 as compared to 2019-20, the DoRD in its written reply have stated
that:-
"The DoRD had projected a demand of Rs. 1,63,630.11 crore for BE-
2020-21. However, the allocated estimates for BE 2020-2021 for DoRD
is only Rs. 1,20,098.43 crore.

Rs. 1,20,098.43 crore allocation for BE for 2020-2021 against demand of

Rs. 1,63,630.11 crore is not sufficient. MGNREGA being a demand
driven programme considering average annual demand by DoRD for
MGNREGA was Rs. 88,000.00 crore but the allocated amount for
MGNREGA is Rs. 61,500.00 crore only."

4.3 The RE of MGNREGA for the financial year 2019-20 was increased to Rs.
71001.81 crore from its BE of Rs. 60,000 crore. However, BE for 2020-21 has been
earmarked for Rs. 61,500 crore. On being asked for such curious situation, DoRD
have replied as below:-
"Mahatma Gandhi NREGA Division, MORD had requested for allocation
of Rs.88,000.00 crore at BE for FY 2020-21.However, the allocation
approved for BE for 2020-21 is Rs.61,500 crore only.”

4.4 Further elaborating upon the fund allocated to MGNREGA, during the course of
evidence, the Secretary, DoRD replied as under:-
14

“Then, Sir, coming to MGNREGS allocation getting reduced in

2020-21 as compared to 2019-20, my humble submission is, and I had
made that point while making the presentation, that we should compare
apples with apples. Therefore, there must be a comparison between BE
to BE and RE to RE. If you see the allocation under BE in respect of
MGNREGS, there is a 2.5 per cent increase. We had asked for more.
That we accept. We also hope that by the time we come to RE in
October, November and December, that is the time when we will get an
increase as it happened this year. That is our submission.”

4.5 Responding to the query of the Committee pertaining to meeting of financial

requirement of Pradhan Mantri Awaas Yojana - Gramin (PMAY-G) with a meagre rise
of 2.63% in budgetary outlay for 2020-21, the DoRD in its written note have submitted
that:-
"Under PMAY-G, BE for FY 2019-20 is Rs. 19,000 crore and RE is Rs.
18,475 crore. The approved amount of EBR for FY 2019-20 is Rs.
10,000 crore against the demand of Rs. 30136.77 cr. The Ministry has
requested Ministry of Finance to provide additional fund at least Rs.
10,000 crore as EBR to meet the demand of the States in the current
financial year. The BE of PMAY-G for FY 2020-21 is Rs 19,500 crore
against the demand of Rs. 55,125 cr for completion of 70 lakh targeted
houses. Apart from GBS, there is a provision under PMAY-G of availing
EBR in the form of loan from NABARD over and above BE. The EBR
amount for the year 2020-21 is Rs. 35,625 crore."

4.6 During the course of examination, the issue of 25% reduction in the funds of
Shyama Prasad Mukherjee Rurban Mission (SPMRM) in 2020-21 as compared to BE
of 2019-20 also came forward. In this regard, DoRD have clarified as under:-
"The releases to States/UTs under the Mission were low in FY19-20 and
therefore lesser funds were demanded at BE stage. However, the
Budget requirement is likely to increase as the second and third
installment proposals are expected from the States/UT. Mission was to
end at March 2020.EFC note for extension of the Mission for two years
i.e. upto March,2022 has already been circulated to the Ministries.
However, the scheme has been extended for another year (circular
received from the Department of Expenditure) on the condition that an
“interim extension beyond 31st March 2020 or the date till which the
Schemes are already approved, is given for a period till 31st March 2021
or till the date the recommendations of 15th Finance Commission come
into effect, whichever is earlier”. Accordingly, more funds if required may
be demanded for at RE stage during 2020-2021."
15

4.7 During the course of evidence, Secretary,

Secreta DoRD, responding to the query
regarding non-expenditure
enditure under SECC, replied as below:-
below:
"एसईसीसी
एसईसीसी म खचा इसिलए नह हआ, हआ जैसा मने पहले भी िनवेदन िकया है, सरकार के तर
पर यह िवचाराधीन है िक या एसईसीसी का अपडेशन िकया जाए और िकस कार से िकया
जाए। जब तक यह नह होगा,
होगा तब तक वह हैड ज र खुला हआ है, बजट म वह हैड होना
चािहए, य िक यूचर म जब खचा होगा तो हम उसे कहां बक
ु करगे। इसिलए
इसिलए, उसम कोई खचा
नह है। उसम नाम मा एक लाख पये का टोटल मनी रखा हआ है, तािक वह हैड िजंदा रहे,
चालू रहे।"
V. UNSPENT BALANCES

1. Quantum

(Rs. In crore)

UNSPENT BALANCES

S.N. SCHEME ST ST
AS ON 31 MARCH AS ON 31 JANUARY
2019 2020

(1) (2) (3) (4)

1 PMAY-G 8989.71 3859.12

2 NSAP 957.38 4012.72

3 MGNREGA 1809.56 2049.89

4 CAPART 2.93 2.61

5 SPMRM 1028.35 1307.81

6 DDU-GKY 1537.23 1530.90

7 DAY-NRLM 1007.93 1694.11

8 PMGSY 16437.42 10701.47

TOTAL 25158.63
31770.51
16

2. Steps to mitigate

To the query of the Committee regarding the accumulations of unspent balance

in various schemes of DoRD and the steps proposed by DoRD to expedite the
utilization of unspent balances, the Department have submitted in its written reply as
under:-

PMAY-G :-
(Rs. In Crores)
Year BE RE Fund utilized Unspent fund
2016-17 15000 16,078.6 16074.37 17334.35

2017-18 23,000 22,832 29901.72* 9724.67

2018-19 21,000 19,600 29986.91** 8989.71

2019-20 19,000 18,475 16070.59 3859.12#

* It includes Rs.7329.43 crores released from Extra Budgetary Resources, i.e. NABARD Loan
** It includes Rs. 10678.80 crore released from Extra Budgetary Resources, i.e. NABARD Loan
# unspent balance in AwaasSoft as on 28.1.2020. It includes centre share, State share,
miscellaneous and interest accrued.

Currently, 3859.12 Cr is the total available unspent balance of funds

which includes centre share, State share, miscellaneous and interest accrued.
The unspent balance in the SNA is because of the slow progress in
implementation of PMAY-G by States/UTs. Application of model code of
conduct and natural calamities have also affected the progress of
implementation of PMAY-G in States/UTs. It is stated that the available unspent
balance fund would be utilised by the end of the financial year.
In order to promote utilization of funds and promote construction of
houses, proactive monitoring has been adopted. Video conferences, review
meetings, regular follow-up, etc. are being conducted to monitor the
performance and progress of states, understand issues and device solutions.

PMGSY:-
Following are various factors for accumulation of unspent balance:
i. Usually the States release central government share as well as state
share towards the end of the year leading to higher unspent balance at
the beginning of the year.
ii. Expenditure is also dependent on the season. In 2019-2020, there was
an early onset and prolonged monsoon due to which the expenditure
was a little slow. Moreover, Odisha has one of the highest workloads in
17

PMGSY was adversely affected by cyclone Bulbul in April-May which

also coincided with the working season before the rains. The normally
expenditure in roads construction picks up only after the second
quarter. In addition there was a long spell of rains over extended period
in the current year, which has impacted the progress adversely.
However, states are now picking up the pace of construction in the
current period.
iii. Most of the balance works are in remote areas and in difficult terrains
where pace of execution is slow. This is also a factor for slow
expenditure. In many states, the expenditure is less on account of
pending bills due to quality inspections and compliance, etc.
iv. The unspent balance is also inclusive of interest earned and the share
of tender premium given by States. However, there is declining trend in
the unspent balance, due to constant monitoring.
The progress of the programme is reviewed regularly at the level of
Minister/Secretary/Joint Secretary, wherein the States are advised to
increase the pace of construction of PMGSY roads and liquidate the
available unspent balance.
NRLM:-
Under NRLM unspent balance is within the reasonable limits considering
the implementation process which requires fund flow from State to District
and Blocks, the programme guidelines allow retention of around 40% of the
allocated funds by permitting release of 2nd installment after utilization of
60% of available funds. Unspent balance indicated in the Question No.20
also includes 2nd installment released in the last quarter.
To control the unspent balance, there is already a built in safeguard in
the NRLM guidelines to regulate accumulation of unspent balances.
According to the guidelines any unspent balance in excess of 10% of the
total allocation of previous year is adjusted against the 2nd installment of the
succeeding financial year. Further Bi-monthly Finance Review Meetings are
held with States to review the progress of the expenditure and resolve any
impediments in smooth flow of funds and pace of expenditure. Performance
review meetings with the States are also held regularly at highest level
under the Chairmanship of Secretary (RD) which are attended by the
Additional Chief Secretaries /Principal Secretaries of all States.
DDU-GKY SKILLS:-
Action plan targets for skill development training for the rural poor youth of
the States and UT’s are sanctioned for a three year period (Action Plan
2016-19 and Action Plan 2019-2022). Funds are released to the States on
demand, based on their past performance and future forecast for the
immediate 6-12 months. Once the State utilizes 60% of the funds released
to it, the next tranche is released after thorough scrutiny of its Utilization
certificate and Audit Reports. Provisional UC’s are allowed only for the
period from the immediately preceding financial year end to the date of fund
18

request. This implies that at any given point 40% (or less) of funds released
to the States will be shown as unspent balances.
NSAP:-
Closing balance as on 31st March of a financial year becomes the unspent
balance on 1st April of the next financial year. Sometimes, States’ proposal
for release of grant are received at the fag end of a financial year which
remains unspent due to paucity of time and hence reflected as unspent
balance for the next financial year. Non-submission of Utilization certificate
by States/UTs may not reflect the exact position of closing and opening
balance of that State/UT. Grants are released to States reducing unspent
balance at the beginning of the financial year.
RURBAN:-
Under SPMRM, the following steps are being taken

i. PFMS integration with RurbanSoft (MIS Rurban)

ii. Removing /Reducing the bottlenecks in the implementation of the
Scheme.
iii. Regular correspondence with the States/UTs for fund utilization and
performance monitoring through Video Conferencing and review
meetings.

VI. SCHEMATIC ANALYSIS

(A) MAHATMA GANDHI NATIONAL RURAL EMPLOYMENT GUARANTEE ACT
(MNGREGA)
1. Scope and Vision of the Programme
The Mahatma Gandhi National Rural Employment Guarantee Act, 2005
(Mahatma Gandhi NREGA) was notified on September 7, 2005.
Mandate
The mandate of the Act is to provide at least 100 days of guaranteed wage
employment in a financial year to every rural household whose adult members
volunteer to do unskilled manual work.
Objectives
The core objectives of the Scheme are as below:
• Providing not less than one hundred days of unskilled manual work as
a guaranteed employment in a financial year to every household in
rural areas as per demand, resulting in creation of productive assets of
prescribed quality and durability.
• Strengthening the livelihood resource base of the poor;
19

• Proactively ensuring social inclusion and

Thus, Mahatma Gandhi NREGA is a powerful instrument for ensuring inclusive

growth in rural India through its impact on social protection, livelihood security and
democratic empowerment.

2. Financial Performance
Funding Pattern
Section 22(1) and (2) of Mahatma Gandhi NREGA Act speaks of the funding
pattern of the Schemes taken up under Mahatma Gandhi NREGA. As per Section
22(1), the Central Government shall meet the cost of following namely:-
(a) The amount required for payment of wages for unskilled manual work under
the Scheme;
(b) Up to three-fourths of the material cost of the Scheme including payment of
wages to skilled and semi-skilled workers subject to the provisions of Schedule
II;
(c) Six percentage of the total cost of the Scheme towards the administrative
expenses.
As per Section 22(2), the State Government shall meet the cost of the
following, namely:-

(a) The cost of unemployment allowance payable under the Scheme.

(b) One-fourth of the material cost of the Scheme including payment of wages to
skilled and semi-skilled workers subject to the provisions of Schedule II.
(c) The administrative expenses of the State Council.

Financial Progress
Financial Progress
Year Budget Estimate Revised Estimate Fund released
2017-18 48,000.00 55,167.06 55,166.06
2018-19 55,000.00 61,830.09 61829.55
58314.06*
2019-20 60,000.00 71001.81
(So far)
2020-21 61500.00 - -
* As on 15.01.2020

The State/UT-wise financial performance for the last three financial years
and the current financial year is produced below:-
20

Financial Progress (Rs. in crore)

FY:2019-20 (as on
FY: 2016-17 FY: 2017-18 FY: 2018-19 28.01.2020)
Central Central Central Central
S. funds funds funds funds *Expenditure
No States released *Expenditure released *Expenditure released *Expenditure released FY:2019-20
ANDHRA
1 PRADESH 3940.21 4597.19 5127.63 6419.20 6714.58 8313.57 6234.08 3934.28
ARUNACHAL
2 PRADESH 156.76 156.26 206.80 225.99 198.01 213.38 107.57 122.99
3 ASSAM 1254.60 1500.86 1123.67 1530.79 1050.37 1338.46 1308.97 1084.72
4 BIHAR 1667.41 2192.53 2468.88 2931.03 2891.94 3204.54 2946.01 2636.41
CHHATTISGAR
5 H 2231.94 2752.60 2898.85 3310.80 3089.97 3050.96 2307.64 2453.16
6 GOA 4.26 4.00 0.56 2.88 0.49 0.29 2.17 0.49
7 GUJARAT 643.24 742.07 825.05 893.20 1060.80 1095.73 707.90 721.28
8 HARYANA 287.71 324.66 301.41 319.06 356.25 365.45 286.61 297.47
HIMACHAL
9 PRADESH 388.61 562.72 586.84 567.96 780.34 849.48 507.58 508.30
JAMMU AND
10 KASHMIR 804.09 833.20 1254.18 1169.50 793.34 861.50 825.62 887.87
11 JHARKHAND 1679.14 1839.54 1352.65 1529.25 1546.29 1521.36 1130.36 1110.06
12 KARNATAKA 2258.65 3308.36 2956.33 3000.28 3049.76 3604.42 4905.07 4022.83
13 KERALA 1582.49 2422.88 1854.06 1901.89 2354.74 2983.14 2509.12 2128.46
MADHYA
14 PRADESH 3448.92 3648.31 3768.90 4254.23 4703.65 5404.02 4118.79 3952.00
15 MAHARASHTRA 1657.09 2094.19 1858.29 2308.14 2019.19 2389.20 1609.13 1396.80
16 MANIPUR 343.70 369.65 157.79 195.06 286.99 294.84 396.00 292.80
17 MEGHALAYA 860.69 794.37 870.60 1134.71 796.55 913.34 738.64 771.18
18 MIZORAM 144.51 149.83 200.81 212.28 402.89 493.04 481.43 430.17
19 NAGALAND 501.53 618.73 1104.93 969.64 195.60 244.31 298.54 312.29
20 ODISHA 1895.27 2135.78 2198.35 2504.14 2224.18 2315.70 2222.19 2139.20
21 PUNJAB 490.73 533.59 618.96 638.18 600.00 669.80 703.50 609.06
22 RAJASTHAN 4818.17 5152.77 4728.28 5138.14 5492.31 5680.16 5613.92 5938.19
23 SIKKIM 132.63 137.47 105.71 124.57 97.63 94.53 59.43 64.35
24 TAMIL NADU 4552.78 5674.00 5831.66 6354.87 4981.94 5766.49 4995.67 4899.58
25 TELANGANA 1806.85 2109.00 2539.20 2784.85 2970.95 3185.08 1973.13 1811.40
26 TRIPURA 1016.29 1200.28 404.40 466.45 444.63 555.22 652.33 673.34
UTTAR
27 PRADESH 3915.85 4252.86 3691.78 4503.35 5475.75 5832.69 4828.37 4706.50
28 UTTARAKHAND 514.35 720.24 716.85 692.44 611.95 633.22 396.27 391.83
29 WEST BENGAL 5377.23 7245.69 5927.03 7913.16 7373.45 7729.45 7088.83 5499.71
ANDAMAN AND
30 NICOBAR 8.01 2.68 9.66 4.17 7.62 5.66 1.87 3.14
31 LAKSHADWEEP 0.00 0.20 0.27 0.21 0.16 0.26 0.24 0.07
32 PUDUCHERRY 3.47 11.01 15.69 14.50 14.75 15.73 15.26 12.77
Total 48387.16 58087.51 55706.07 64014.92 62587.06 69625.04 59972.21 53812.68
* Including State and central share
Source : As per MIS

2.2 Justifying the hike at RE stage in MGNREGA for the financial year 2019-20 to
Rs. 71,001.81 crores from its BE of Rs. 60,000 crores, the Department have stated in
their written replies as under:-
21

"The RE of MGNREGA for the financial year 2019-2020 was increased

to Rs. 71,001.81 crore from its BE of Rs. 60,000.00 crore to :
1) Ensure timely wage payment to the wage seekers which is a
statutory responsibility of the Central Government.
2) Pay the pending Fund Transfer Orders(FTOs) / wage liabilities of
the States/UTs and enable the States to pay wages of the workers
to run the programme till 31st March, 2020.
3) Pay the pending liabilities of Material & Admin. Component as well
as to meet the expenditure on Material & Admin component for
the remaining period i.e. up to March, 2020.
An amount of Rs. 20,000.00 crore was sought for additional over
and above BE Rs. 60,000.00 crore. However, the revised
allocation approved at RE stage during the current FY is Rs.
71,001.81 crore."
2.3 Queries were also raised by the Committee regarding the electronic mode of
payment system's performance under MGNREGA, the DoRD have clarified as below:-
"E-payment are done under Mahatma Gandhi NREGA using electronic
fund management system (efms) to transfer wage of the workers into the
Bank/Post Office account of the workers. During the FY 2019-20, the
total percentage of expenditure through efms is 99.70% (As on
29.1.2020)."

3. Phsyical Performance
Mahatma Gandhi NREGA is a demand driven wage employment programme.
The Act provides a guarantee for minimum 100 days of wage employment in a year to
every rural household whose adult members volunteer to do unskilled manual work.
No targets are fixed. Gram Sabha identifies projects for taking up in a Financial Year
through participatory planning against the Estimated Labour Budget.

The phsyical progress of Mahatma Gandhi National Rural Employment

Guarantee Act in terms of employment generation and participation of women and
SC/ST is indicated below:-
Sl.
Indicator 2019-20* 2018-19 2017-18 2016-17 2015-16
No.
Agreed to Labour Budget
270.43 256.56 231.31 220.93 239.11
1 [Persondays in crore]
2 Persondays generated (No. in crore) 197.86 267.98 233.74 235.65 235.15
3 Average persondays per household 41 51 46 46 49
4 Women participation rate to total (%) 55 55 53 56 55
5 SC/ST participation to total (%) 38 38 39 39 40
* Till 17.01.2020
22

The State/UT-wise phsyical performance for the last three financial years and
the current financial year is produced below:-
Physical Progress
FY:2019-20 (as on
FY: 2016-17 FY: 2017-18 FY: 2018-19 28.01.2020)

Agreed Agreed Agreed Agreed

to to to to
Labour Persondays Labour Persondays Labour Persondays Labour Persondays
S.No States Budget Generated Budget Generated Budget Generated Budget Generated
ANDHRA
1 PRADESH 16.53 20.61 20.00 21.21 24.70 24.65 20.00 15.78
ARUNACHAL
2 PRADESH 0.50 0.85 0.50 0.43 1.00 0.69 1.00 0.57
3 ASSAM 4.08 4.66 5.00 4.81 5.00 5.33 5.00 4.55
4 BIHAR 14.25 8.58 12.50 8.17 14.00 12.34 16.00 10.28
5 CHHATTISGARH 9.00 8.86 10.00 11.99 11.00 13.86 13.00 10.20
6 GOA 0.02 0.01 0.02 0.01 0.02 0.00 0.02 0.00
7 GUJARAT 3.34 2.71 5.00 3.53 4.25 4.20 4.00 2.77
8 HARYANA 0.98 0.85 1.00 0.90 1.00 0.78 1.00 0.65
HIMACHAL
9 PRADESH 2.18 2.37 2.50 2.20 2.70 2.85 2.83 2.01
JAMMU AND
10 KASHMIR 2.64 3.16 3.00 3.71 4.00 3.69 3.60 1.49
11 JHARKHAND 7.00 7.07 7.00 5.93 7.00 5.37 7.00 5.39
12 KARNATAKA 10.00 9.14 10.00 8.57 10.00 10.45 12.00 9.33
13 KERALA 6.03 6.84 4.50 6.20 7.00 9.75 7.00 6.10
MADHYA
14 PRADESH 14.27 11.30 15.50 16.22 20.00 20.30 20.00 15.91
15 MAHARASHTRA 8.50 7.09 8.00 8.25 9.00 8.46 10.00 4.94
16 MANIPUR 2.08 1.19 1.00 0.61 1.60 1.17 2.60 1.62
17 MEGHALAYA 2.00 2.83 3.00 2.92 3.50 3.42 3.50 2.35
18 MIZORAM 1.26 1.68 1.49 1.44 1.50 1.81 1.97 1.63
19 NAGALAND 1.75 2.91 2.50 2.00 1.27 1.33 1.26 0.95
20 ODISHA 8.00 7.74 9.00 9.22 9.50 8.30 10.00 7.91
21 PUNJAB 1.38 1.58 2.18 2.23 2.00 2.04 2.00 1.93
22 RAJASTHAN 23.00 25.96 22.00 23.97 25.00 29.42 30.00 27.98
23 SIKKIM 0.40 0.46 0.40 0.35 0.40 0.34 0.40 0.22
24 TAMIL NADU 31.55 39.99 25.00 23.89 25.00 25.77 25.00 21.04
25 TELANGANA 10.00 10.82 12.00 11.48 13.00 11.77 12.00 9.75
26 TRIPURA 4.51 4.61 2.28 1.76 3.00 2.53 4.00 2.76
UTTAR
27 PRADESH 15.00 15.75 18.00 18.15 20.00 21.21 25.00 19.86
28 UTTARAKHAND 1.80 2.37 1.82 2.23 2.00 2.22 2.15 1.32
29 WEST BENGAL 18.78 23.55 26.00 31.26 28.00 33.83 28.00 16.38
ANDAMAN AND
30 NICOBAR 0.04 0.04 0.03 0.02 0.04 0.02 0.03 0.02
31 LAKSHADWEEP 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.00
32 PUDUCHERRY 0.06 0.05 0.10 0.07 0.08 0.07 0.08 0.06
Total 220.93 235.65 231.31 233.73 256.56 267.97 270.43 205.77

3.2 The Committee were desirous of knowing the break-up of the status of issuance
of job cards vis-a-vis number of employment provided against the issued job card.
Responding to it, the DoRD have provided the detail as below:-
23

State/UT wise Job card issued and employment provided against the job
card issued is given below:- (In Nos.)

Employment
Job Card Issued Provided
S.No States FY:2019-20 FY:2019-20
1 ANDHRA PRADESH 8915146 3792832

2 ARUNACHAL PRADESH 233274 148102

3 ASSAM 4722007 1591136

4 BIHAR 15947613 2588572

5 CHHATTISGARH 3791876 2199922

6 GOA 33353 1088

7 GUJARAT 3784196 707543

8 HARYANA 957033 214349

9 HIMACHAL PRADESH 1257188 471837

10 JAMMU AND KASHMIR 1220524 379575

11 JHARKHAND 4475752 1257477

12 KARNATAKA 6188078 2076253

13 KERALA 3618617 1373321

14 MADHYA PRADESH 6848521 3269621

15 MAHARASHTRA 8534703 1341294

16 MANIPUR 569532 524929

17 MEGHALAYA 578106 451865

18 MIZORAM 198339 201990

19 NAGALAND 433895 377206

20 ODISHA 6684724 2004789

21 PUNJAB 1668433 690294

22 RAJASTHAN 10246771 5248871

23 SIKKIM 82600 53878

24 TAMIL NADU 8245173 5400104

25 TELANGANA 5534966 2347407

26 TRIPURA 626320 557707

27 UTTAR PRADESH 16441870 4892824

28 UTTARAKHAND 1068426 386964

29 WEST BENGAL 12170963 4322412

30 ANDAMAN AND NICOBAR 34590 5243

31 DADRA & NAGAR HAVELI 3549 0

32 DAMAN & DIU 0 0

33 LAKSHADWEEP 8024 85

34 PUDUCHERRY 66624 35763

Total 135190786 48915253

24

4. Issues related to wages

Delay in payment of wages
4.2 Timely payment of wages is an essential aspect of MGNREGA - delay in
payment of wages under MGNREGA came to the fore during the course of
examination. When asked about the reasons for the delay in payment of wages and
the corrective steps being taken by the DoRD, it has replied in the written note as
mentioned below:-

"The delay in payment of wages is due to implementation issues

in the States which include inadequate staffing, non-timely recording and
reporting to attendance, measurement, data entry, generation of wage
list, Fund Transfer Order (FTO).
Efforts have been made by the Ministry to reduce the delay in
payment of wages to Mahatma Gandhi NREGA workers viz, timely
release of funds, payment through National Electronic Fund
Management System(NeFMS) for direct payment of wages into workers
account, issued guidelines for monitoring of timely payment and payment
of delay compensation , enabling appropriate provisions in NREGASoft
to monitor timely payment of wages and payment of delay compensation.
The Ministry is in constant engagement with the State Governments/UTs
through review meetings, video conferences, Mid Term Review, etc."

Disparity in wages

4.3 A pertinent issue associated with the implementation of MGNREGA is the

difference between the minimum wage ensured by the States and the minimum
guaranteed wage under MGNREGA. The Committee sought information on the steps
being taken by DoRD to tackle this issue. In their written reply, the DoRD have
submitted as under:-
"Wage rate provisions under Mahatma Gandhi NREGA, 2005 are notified
and revised annually as per Section 6 of Mahatma Gandhi NREGA Act,
2005.The Act provides that
(1) “Notwithstanding anything contained in the Minimum Wages
Act,1948 (11 of 1948), the Central Government may, by notification,
specify the wage rate for the purposes of this Act:
Provided that different rates of wages may be specified for different areas:
Provided further that the wage rate specified from time to time under any
such notification shall not be at a rate less than sixty rupees per day.
25

(2) Until such time as a wage rate is fixed by the Central Government in
respect of any area in a State, the minimum wage fixed by the State
Government under section 3 of the Minimum Wages Act, 1948 (11 of
1948) for agricultural labourers, shall be considered as the wage rate
applicable to that area.
The Mahatma Gandhi NREGA also provides for notification of wage rates
which could be different from Minimum Wages for Agricultural Labour."

4.4 Further enquiring about proposal for linking the wages with inflation, the DoRD
have furnished their reply as mentioned below:-
"Until such time as a wage rate is fixed by the Central
Government in respect of any area in a State, the minimum wage fixed
by the State Government under section 3 of the Minimum Wages Act,
1948 (11 of 1948) for agricultural labourers, shall be considered as the
wage rate applicable to that area.
The Mahatma Gandhi NREGA also provides for notification of
wage rates which could be different from Minimum Wages for
Agricultural Labour.
As per the above mentioned provisions, the Ministry of Rural
Development notifies wage rates annually for Mahatma Gandhi NREGA
workers. This wage rate calculation is indexed with Consumer Price
Index for Agricultural Labour (CPI-AL)."
5. Payment of Unemployment Allowance
As per section 22(2) of MGNREGA, the State Government shall meet the (a)
cost of unemployment allowance under the scheme.
5.2 During the current financial year only four States have paid unemployment
allowance as per following detail:-
S No. State (Rs. in Lakhs)
1 2 3
1 HIMACHAL PRADESH 0.01
2 MAHARASHTRA 0.04
3 ODISHA 0.01
4 RAJASTHAN 0.06
Total 0.12
5.3 Asked about the measures taken by DoRD to ensure the payment of
unemployemnt allowance under the scheme, the Department have submitted in its
written note produced below:-
26

"The payment of unemployment allowance is the responsibility of the

concerned States/UTs. However, this is being monitored by the
Department of Rural Development on regular basis through review
meetings, video conferences, Mid Term Review, etc."
6. Ambit of work taken up under MGNREGA
While discussing about the types of different work which can be taken under the
domain of MGNREGA, the Committee wanted to know about the Mission Water
Conservation (MWC) aspect of MGNREGA, the DoRD have submitted as below:-
"The Ministry of Rural Development has circulated framework on Mission
Water Conservation to all the Sates to take up Natural Resource
Management (NRM) works in convergence with Ministry of Water
Resource and Department of Land Resource (GOI) vide letter
No.F.No.J-11011/07/2016-RE-I (351427) dated 1st November , 2016.
Five days training programme (SAKSHAM) imparted to the functionaries
at State, District and Block level under Mahatma Gandhi NREGS for
smooth implementation of the works. The States have been advised to
make more than 65% expenditure on NRM works in the water stress
blocks under Mahatma Gandhi REGS."
6.2 To a pointed question during the course of evidence, regarding the inclusion of
more works under MGNREGA, the Secretary, DoRD briefed as under:
"िफर आपने एक सझ ु ाव िदया था िक या महा मा गांधी नरेगा के तहत खेती को बचाने के िलए
फिसंग क जा सकती है अथवा नह ? वतमान म दो तरह के ावधान एमजीनरेगा म ह। पहला
यह है िक हम च फिसंग कर सकते ह, यानी एक खेत के चार तरफ एक च बना सकते ह।
दूसरा, हम लाइव फिसंग यानी ीन फिसंग कर सकते ह, लेिकन अगर आपका उ े य वहां
पमाने ट दीवार बनाने का है याएंगल आइरन या बा ड वायर फिसंग का था तो वह अभी
परिमिटड नह है। एमजीनरेगा म या काय परिमिटड ह, उसके बारे म हम ित वष एक बार
उसको देखते ह। We have an exercise where we look afresh. उसके िलए एक
सिमित बनती है, िजसम हमारे कुछ पदािधकारी होते ह और कुछ ऑिफसस रा य से आते ह।
वैसा ही इस बार भी होगा। उसके सामने हम इस मु े को रखगे।"

"सर, इसके बाद ब रयल ाउंड्स के बारे म कहा गया था। अनेक रा य ने, िजनम म य देश
एक है, ब रयल ाउंड्स को एमजीनरेगा म िलया है और अ छी तरह से डेवलपिकया है। They
have demarcated the area of the burial ground of all communities,
irrespective of religion. They have given a hand-pump in that burial
ground. They have gone in for plantation of trees in the burial ground.
They have created a shed in the burial ground. These activities can be
taken up."
27

6.3 To a reply on the status of the activities and funds utilized under Mission Water
Conservation (MWC), the DoRD have provided the following details:-
"The Natural Resource Management (NRM) works taken up during last
three financial years and in the current financial year in all States/UTs
are as under:-
%age of
Number of Number of Expenditure on Expenditure on expenditure on
Number of
YEAR Ongoing NRM Completed NRM NRM works[In. All works [In. NRM works
Blocks
works works Lakhs] Lakhs] against total
Expenditure

2017-18 6934 3756841 2386285 3252057.3 5898885.61 55.13

2018-19 6934 4132239 2606679 4135495.79 7032419.47 58.81

2019-20 6934 4176290 1914066 3244342.36 4895078.09 66.28

6.4 During the course of evidence, the Secretary, DoRD in this context submitted
before the Committee as below:-
"सर, एक सझ ु ाव यह आया था िक या जो तालाब, पोखर और छोटी निदयां ह, उनको
एमजीनरेगा से रवाइव िकया जा सकता है या नह ? अगर वे निदयां रवाइव नह होती ह तो
उनका इन ोचमे ट होता रहेगा। इनको रवाइव िकया जा सकता है, यह परिमशेबल एि टिवटी
है। इसी पैसे से और ामीण के मदान से यूपी म कुछ निदय को रवाइव िकया गया है। यूपी म
दो रसोसज़ को सटन रे यल ु ेट्स के रवाइवल के िलए क बाइन िकया गया है। कनाटक म भी
यह हआ है।"
7. Ground Level Monitoring / Audit Mechanism

The Committee was inquisitive about the monitoring aspect of the programme
and as such enquired about corruption cases and action initiated by the DoRD. The
Department have replied as produced below:-

"The Ministry, under Mahatma Gandhi NREGS receives complaints of

irregularities/corruption and embezzlement including large scale
diversion of funds, under/non-payment of wages, lack of transparency
etc. through CPGRAMS web portal. Since the responsibility of
implementation of Mahatma Gandhi NREGA is vested with the State
Govt./UTs, all complaints received in the Ministry are forwarded to the
concerned State Govt./UTs for taking appropriate action including
investigation, as per law. Steps have been taken to strengthen
28

transparency and accountability which include geo-tagging, Direct

Benefit Transfer (DBT), National electronic Fund Management System
(Ne-FMS), Aadhaar Based Payment System (ABPS), Software for
Estimate Calculation using Rural rates for Employment(SECURE) and
establishment of independent social audit units and appointment of
Ombudsman in the States. State specific reviews of States are also
undertaken from time to time. Officers of the Ministry and National Level
Monitors also visit various districts to oversee the performance of
Mahatma Gandhi NREGA. The details are as below:-
State wise details of pending corruption cases as on 29.01.2020
Sl. Corruption cases pending under
No. State MGNREGA
1. Arunachal Pradesh 1
2. Assam 1
3. Bihar 42
4. Chhatisgarh 49
5. Gujarat 2
6. Haryana 7
7. Himachal Pradesh 2
8. J&K 5
9. Jharkhand 3
10. Kerala 1
11. Karnataka 8
12. Maharashtra 2
13. MP 4
14. Odisha 4
15. Punjab 6
16. Rajasthan 10
17. Tamil Nadu 12
18. Uttar Pradesh 39
19. Uttarakhand 3
20. West Bengal 15
Total 216

7.2 On further enquiring about the operationalization of social audit and internal
audit system, the DoRD in its written reply have furnished as under:-

"Yes, system of Social Audit and Internal Audit are operational and are
being strengthened. In association of with the office of Comptroller &
Auditor General (C&AG) the auditing standards have been finalized and
the implementation of the same has been started. Independent Social
Audit units have established in 27 States and 1 UT.
Internal Audit Wing, MoRD conducts audit of MGNREGA Scheme
as per the approved annual audit plan. The details of the district audit
29

units under MGNREGA Scheme were audited in FY 2017-18, 2018-19

and 2019-20 (as on 31.12.2019) respectively is as under:-

Sr. No. Year Number of district units

audited
1 2017-18 34
2 2018-19 30
3 2019-20(Upto 31.12.2019) 26

(B) PRADHAN MANTRI AWAAS YOJANA - GRAMIN (PMAY-G)

1. Aim and Objective

The erstwhile Indira Awaas Yojana restructured as Pradhan Mantri Awaas

Yojana - Gramin (PMAY-G) w.e.f 1st April, 2016 aims to provide “Housing for All”
through provision of pucca house with basic amenities to all houseless households
and households living in kutcha and dilapidated house in rural areas by 2022. The
overall target is to construct 2.95 Crore houses during the period 2016-17 to 2021-22,
wherein 1 Crore house were targeted to be constructed in Phase-I (2016-17 to 2018-
19) and 1.95 Crore houses in Phase-II (2019-20 to 2021-22).

The salient features of PMAY - G

 Unit assistance of Rs. 1,20,000 in plain areas and Rs.1,30,000 in hilly

States/difficult areas / IAP districts.
 Provision of toilets at Rs.12,000/- and 90/95 days of unskilled wage labour
under MGNREGA over and above the unit assistance.
 Houses to have a minimum size of 25 sq.mt including a dedicated area for
hygienic cooking.
 Facilitating willing beneficiaries to avail loan from Financial Institutions for an
amount of upto Rs.70,000.
 Identification and selection of beneficiaries is based on the housing
deprivation and other social deprivation parameters in SECC-2011 data and
verification by Gram Sabha. While devising the procedure for identification
of beneficiaries, utmost emphasis has been assigned to verification of
priority lists by Gram Sabhas. To ensure swift and prompt disposal of
grievances/complaints pertaining to the verification process, a robust
Appellate mechanism for grievance redressal has been put in place at the
State Level. Till date, 1.36 crore households out of a universe of 4.04 crore
have been rejected by Gram Sabha on grounds of having a pucca house,
migration, death etc. and remaining households have been found eligible to
receive assistance after conclusion of the Appellate proceedings.
 Earmarking for focus groups: Minimum 60% of the funds are earmarked
for SC/ST and upto 15% for minorities. States/UTs should ensure that as far
30

as possible at least 5 % of beneficiaries are from among persons with

disabilities.
Fund sharing pattern:
 The grants under the scheme are released by the Centre and States in the
ratio of 60:40 except for North-Eastern and Himalayan states and UT of
Jammu & Kashmir where the funding pattern is in the ratio of 90:10 by the
Centre and the States. For UTs, 100% funds are provided by the Centre.
 Out of the annual budgetary provision for PMAY-G, 95% are earmarked for
construction of new houses under PMAY-G. This includes 2% allocation
towards Administrative Expenses for administering the Scheme at the
Central and State level. The remaining 5% of budgetary grant is retained at
the Central Level as reserve fund for special projects in order to meet
exigencies arising out of situations like flood, cyclone, earthquakes, etc.
 Financial Assistance is released to States/UTs in two installments of 50%
each as per provisions of Framework for Implementation of PMAY-G.

2. Physical Progress

House Constructed*
Year PMAY-G PMAY-G IAY Total % completed
Target
(in Nos)
2016-17 4277969 2116 3211331 3213447 75.12
2017-18 3201217 3816126 638467 4454593 139.15
2018-19 2520814 4472548 260951 4733499 187.78
2019-20 5105396 895982 37245 933227 18.28
Total 15105396 9186772 4147994 13334766 88.28
As per AwaasSoft report as on 16.1.2020.
*This include houses completed against the target of preceding years

2.2 Replying to the progress detail of the phase I of the PMAY-G, the Department
have provided as under:-

Phase I (2016-17 to 2019-20)

Houses Targeted 1 crore

Houses sanctioned for Phase-I 97,97,278

1st installment released 96,83,854

House construction completed 87,01,741

As reported on AwaasSoft as on 28.1.2020

31

Some of the reasons for slow pace of performance are mentioned below:
i) Landlessness among beneficiaries – 3.26 lakh out of 4.23 lakh
beneficiaries remaining to be provided land
ii) Migration – both temporary and permanent
 Beneficiaries unwilling to construct the houses

 Very heavy rains, floods in many parts of the Country

 Imposition of Model Code of Conduct from 9th March, 2019 till 23rd May
2019 for General Election and Assemble election from time to time
 Delayed houses – Houses exceeding 12 months
 Larger than the prescribed house size
 Death of beneficiary
 Non-availability of construction material, especially sand
 Land dispute
 Natural Calamity

2.3 On the query of the Committee regarding the progress made so far under
phase II of PMAY-G, the DoRD have furnished in its written reply as below:-

Phase II (2019-20 to 2021-22)

Total Target for 2019-20 51.07 lakh
Registration completed by States/UTs 40,88,972
Sanctions made by States/UTs 40,99,340
1st installment paid to sanctioned 36,78,686
households
Houses completed 6,31,315
As reported on AwaasSoft as on 28.1.2020

3. Financial Expenditures
(Rs.in crore)
Year B.E RE Actual Expenditure Achievement
(in Crore) (in Crore) (in Crore) (Central Release as %age
of RE)
(ii) (iii) (iv)
(i)
2016-2017 15000 16078.60 16074.37 99.97%
2017-2018 23000 22832.31 22572.29 + EBR Rs.7329.43 crores 98.86%
2018-2019 21000 19600 19307.95 + EBR Rs. 10678.80 98.51%
crore
2019-2020 19000 18475 15352.67 83.09%
(as on 10.1.2020)
32

3.2 During the course of examination, the Committee wanted to know about the
estimated cost to be incurred for the completion of houses under PMAY-G and
realization of vision 'Housing for All' by 2022. The DoRD have responded in its written
reply as under:_
Projected Central and State spending as per the draft EFC note is as below:-

Administrative Total Cost

Total cost (unit Central
Target Expenses (4% to GoI
Year assistance @ share 63% of
(nos) of central (Rs. in
Rs.1,25,000) total cost
share) crore)
2020-
21 70,00,000 87,500 55,125 2,205 57,330
2021-
22 65,00,000 81,250 51,188 2,048 53,235
Total 1,35,00,000 1,68,750 1,06,313 4,253 1,10,565

State Share Admin Cost Total Cost of the

37% of total (4% of state Total cost to State proposed Scheme
Year
cost (Rs. in share) (Rs. Govt. (Rs. in crore) (Central Share +
crore) in crore) State Share)
2020-21 32,375 1,295 33,670 91,000
2021-22 30,063 1,203 31,265 84,500
Total 62,438 2,498 64,935 1,75,500

3.3 Further enquiring about the sufficiency of funds as above, the DoRD have
stated that :-
"The expenditure requirement will be met out of the budgetary allocation
for PMAY-G. The gap in the financial requirement would be met through
Extra Budgetary Resources viz., loan from financial institution viz.,
NABARD"
4. Incompletion of Houses

Only 18.28% of the target of the houses have been shown to be completed
during 2019-20 till date. Enquiring about the reasons for such low figure, the DoRD
have submitted in its written reply as mentioned below:-
“As per para 5.6.2 of the Framework of Implementation of PMAY-G, the
construction of house should be completed within 12 months from the date of
sanction.
33

Reasons for slow progress

I. Imposition of Model Code of Conduct from 9th March 2019 till 23rd May
2019
II. Delayed houses – Houses exceeding 12 months
 Larger than the prescribed house size
 Death of beneficiary
 Non-availability of construction material, especially sand
 Land dispute
 Natural calamity
III. Landlessness among beneficiaries – 3.26 lakh out of 4.23 lakh
beneficiaries remaining to be provided land
IV. Beneficiaries unwilling to construct the houses
V. Very heavy rains, floods in many parts of the Country
VI. Migration – both temporary and permanent
Steps taken to ensure fast pace and completion of the pending houses:
1. Monthly VC at the level of Secretary / Special Secretary Rural
Development
2. Fortnightly VC with technical teams of the states to resolve the issues
faced
3. Assigning of States to DoRD officers for regular follow up with poor
performing States
4. Letter from Hon’ble MRD to Hon’ble Chief Ministers for review at their
level
5. Allocation of month-wise completion targets required rate of
completion and timelines
6. Follow-up on providing land to landless beneficiaries of PMAY-G
7. District-wise review in the States with larger targets
8. Visits to the States by Rural Housing teams to understand and
address issues at the ground level
9. Timely availability and release of funds to the States/UTs
10. State-wise analysis of delayed houses and regular follow-up
11. Allowing completion of delayed houses beyond 31st January 2020”

4.2 Elaborating further on the issue, the Secretary, DoRD during the course of
evidence apprised the Committee as under:-
"आवास म आप देखगे, िपछली बार का भी हमारा यह अनभु व रहा है िक जब मकान िलंटेल
लेवल पर आ जाते ह, तब वे तेजी से क लीट होते ह। जो असली चैलज है, वह फाउंडेशन क
खदु ाई से लेकर छत काजो लटल तर है, वहां तक रहता है। हम लोग यह मानते ह िक जो
िव ीय वष के ल य ह, वे हाउिसंग के मामले म जून तक परू े ह गे। इसिलए हमने हर वष, िपछले
वष भी, जून तक यह उपलि ध क थी। जो मकान िलंटेल लेवल तक आ गया, हम के वल
इसिलए उसको अधूरा िदखा द िक 31 माच आ गई है, वह भी शायद तािकक नह होगा।"
34

5. Delay in release of Installment

About this burning issue, when enquired during the evidence, the Secretary,
DoRD deposed as under:-
“”सर, म यह बताना चाहंगा िक पैस को जब हम रलीज करते ह तो उसके िलए कुछ शत होती
ह। शत यह रहती है िक जब हमने टेट गवनमट को पैसा रलीज िकया, तो उसका यूनतम 60
ितशत यय होना चािहए। इसके अलावा पैस के रलीज के समय हम लोग ने कुछ शत लगाई
ह, तो उन शत क भी पिू त होनी चािहए। म सभी टेट गवनमट् स क बात कर रहा हं। जो टेट
गवनमट् स शत क पूित के साथ ताव कर देते ह, हम उनको तरु तं पैसा रलीज कर देते ह।"

6. Design/Quality of Construction

Regarding the usage of area specific house design typology being used at
ground level, the DoRD have elaborated as under in their replies:-
"The house design typology for the region /housing zone have been
developed keeping in account local geo-climatic and cultural
considerations, locally available construction materials and disaster
resilient features. Further, the use of house design typologies leads to
significant reduction in the cost of construction, minimize adverse
environmental impact associated with the construction activities and
generates livelihood opportunities to the locals. Considering the all above
merits of region-specific house design typologies, beneficiaries are being
encouraged to use such house designs in the construction of houses
under PMAY-G, though it is up to the beneficiary how he/ she wants to
construct the house. Some of the efforts by the MoRD in this regard are
as follows-
i. MoRD with the help of IIT-Delhi, and United Nations Development
Programme (UNDP) had undertaken state-specific studies in 18 states
for the development of house design typologies appropriate to local geo-
climatic and cultural context. Consequent to the studies, house design
typologies were proposed which were vetted by CSIR-Central Building
Research Institute (CSIR-CBRI). As an outcome of the study, MoRD has
published a compendium of region-specific house designs with the name
‘Pahal’ which includes 108 house designs for 64 housing zones in 15
States.
ii. Consultation for collaboration- A day long consultation workshop
with leading academic institutes of Architecture, Engineering and Rural
Development was organized in the presence of Minister Rural
Development in the month of January 2018. Avenues for collaboration
with the academic institutes in the implementation of PMAY-G and
quality construction of houses were explored during the consultation.
iii. States are being encouraged to construct demonstration houses
on region specific house design typologies for PMAY-G beneficiaries to
35

visit, experience and opt.

iv. The IT based portal Rural Housing Knowledge Network (RHKN)
for comprehensive knowledge on house design typologies, construction
technologies, costing & resources is being developed by the MoRD.
National Institute of Rural Development & Panchayati Raj (NIRD-PR), IIT
Delhi and NIC have been on-boarded for the same.
Considering the merits of region-specific house design
typologies, beneficiaries are being encouraged to use such house
designs in the construction of houses under PMAY-G, though it is up to
the beneficiary how he/ she wants to construct the house."

6.2 For improving the quality of house construction, the Committee wanted to know
the steps being taken by the Department. In this context, the DoRD have replied that:-
"To ensure construction of quality houses, the Ministry has launched Rural
Mason Training (RMT) program under PMAY-G in partnership with the
Construction Skill Development Council of India (CSDCI) and National Skill
Development Corporation (NSDC).

The houses of old, infirm & disabled households are constructed on priority
under this initiative.
As on 13th January 2020, number of candidates enrolled is 99,787 and 59,013
have been trained & certified under this initiative.”

7. Awaas+
To know about the plight of left-over beneficiaries from the list of Permanent
Wait List (PWL), the Committee posed the question before the Department. In this
regard, the DoRD have submitted its reply as below:-
"The framework for implementation of PMAY-G provides for inclusion of
those households in the Permanent Wait List (PWL), who though eligible
for assistance under PMAY-G as per Socio Economic Caste Census
(SECC) parameters, but have been left out of the PWL. For compilation
of data in respect of additional beneficiaries for inclusion in PWL, Ministry
of Rural Development in collaboration with National Informatics Centre
(NIC) has developed a separate mobile application (Awaas+). The data
collected through Awaas + survey is being analyzed by an Expert
committee. The Expert Committee has been constituted under the
Chairmanship of Dr. Nagesh Singh, former Additional Secretary, MoRD
with members from RD (RH), Ministry of Statistics and Programme
Implementation(MoSPI) , National Remote Sensing Centre Na (NRSC),
National Informatics Centre (NIC), Centre of Excellence for Data
36

Analytics (CEDA) to analyze Awaas Plus data and suggest a way

forward for allocation of targets to states and identification of
beneficiaries. The interim report has been submitted by the committee
and the final report is expected to be submitted soon."

7.2 The Secretary, DoRD during the course of evidence further elaborated on this
aspect before the Committee as under:
"You would know that we have created an application which is known as
Awas Plus, which we shared with all the States and asked them to give
us the detail of genuine beneficiaries which have been left out. In respect
of West Bengal, we have got an information of about 57,44,000
beneficiaries which have been left out.
Across the country we have got roughly about 3 crore through Awas Plus
which we will do. We have constituted an internal expert committee.
They have done their final deliberations. We have also had two meetings
with the State Government representatives because they are important
party to it. The last meeting was held yesterday. We will now be finalizing
it. "

8. Unit Assistance

Responding to the query raised by the Committee for increasing the unit
assistance being provided under PMAY-G, the DoRD have submitted in their written
reply as under:-
“The erstwhile rural housing scheme Indira Awas Yojana (IAY) had been re-
structured into Pradhan Mantri Awaas Yojana – Gramin (PMAY-G) in view of
Government’s commitment to provide “Housing for All” by 2022 and to address
the gaps that existed in the scheme. The re-structured scheme Pradhan Mantri
Awaas Yojana – Gramin (PMAY-G) came into effect from 1st April 2016. Under
IAY, assistance of Rs 70,000 and Rs 75,000 was given to given to beneficiaries
in plain and hilly regions respectively. The same has been increased to Rs
1,20,000 and Rs 1,30,000 under Pradhan Mantri Awaas Yojana – Gramin
(PMAY-G) for plain and hilly regions respectively which came in effect from 1st
April 2016. Also, a mandatory support of 90/95 man-days is given to the
beneficiaries for house construction under the MGNREGA scheme in the plain
and hilly regions respectively. An additional Rs. 12,000 for construction of toilets
under the Swachh Bharat Mission (SBM) is also given to all PMAY-G
beneficiaries. So, the combined benefits total to approximately Rs. 1,50,000 and
approximately Rs. 1,60,000 in plain and hilly regions respectively.”
37

8.2 While discussing further on the above issue, the Secretary, DoRD during the
course of evidence stated as under:-
"सर, इसके बाद यह इ यू उठा था िक शौचालय और पी.एम.ए.वाई., दोन क जो यूिनटकॉ ट
है, उसको बढ़ाने पर िवचार होना चािहए। इसम शौचालय के 12 हजार पये से 20 हजार पये
और पी.एम.ए.वाई. के यूिनट कॉ ट क वही रािश हो, जो शहरी इलाके म है। सर, त काल तो
यह अभी सरकार के िवचार म नह ह, य िक आज यह मामला उठा है तो इसको हम ज र
ए जािमन करगे। उसके बाद आपको बताएंगे।
सर, जब वष 2016 म धानमं ी आवास योजना बन रही थी तो उसके िलए एक ए सपट
कमेटी थी।"
9. Monitoring Aspect

The Department have elaborated upon the monitoring and supervision aspect
of the Yojana as below:-

DoRD has adopted a very robust monitoring mechanism to monitor

performance as well as the processes under PMAY-G:

Monitoring at MoRD:
 The progress of the States/UTs, Districts, Blocks and Panchayats under
the scheme is monitored only through the reports generated from
AwaasSoft.
 The performance of the States / UTs, Districts, Blocks and Panchayats on
different pre-determined parameters are monitored through Performance
Index Dashboard. Monitoring through Performance Index Dashboard
helps in identifying areas of improvement and motivate towards better
results in implementation of the programme and ensuring timely
completion of houses against targets assigned.
 Ground verifications is done by different agencies like Area Officers,
National Level Monitors etc.
 The end to end execution of the scheme from the selection of
beneficiaries, disbursal of assistance to beneficiaries, verification of
progress in construction, release of funds etc. is conducted through
workflow enabled transaction based MIS – AwaasSoft.
 The physical progress of stage-wise construction on ground is verified
and monitored through geo-referenced, date and time stamped
photographs captured by inspectors or by beneficiaries using the mobile
based application - “AwaasApp” and uploaded on AwaasSoft.
 The quality of houses constructed under PMAY-G is monitored through a
quality monitoring module developed in the mobile application
“AwaasApp”
38

 National Level Monitors and Area Officers of the Ministry also visit PMAY-
G houses to assess the progress and processes followed under the
scheme during their field visits. The DISHA Committee at the district level,
headed by Hon’ble Member of Parliament, also monitor progress and
implementation of PMAY-G.
Monitoring by State/UT Governments
 Officers at the Block level to inspect as far as possible 10% of the houses
during construction.
 District level officers to inspect 2% of the houses during construction.
 Every house sanctioned under PMAY-G to be tagged to a village level
functionary including Government employees (Gram Rozgar Sahayak or
any other village level worker) who shall facilitate and follow-up with the
beneficiary till the completion of a house. For green housing, they would
also facilitate and certify compliance requirements as specified (the
requirement of this line needs to be looked into).
 The implementation of different parameters at the State / District / Block /
Panchayat levels are monitored by the officials of the State Government
through the Performance Index Dashboard.
Financial Audit
 The State to ensure that the State Nodal Bank Account (SNA) of PMAY-G
at the State level, administrative fund account at the State and District
level is audited by a Chartered Accountant selected from a panel
approved by the C&AG. The books of accounts maintained for PMAY-G
at all levels shall also be open to audit by the C&AG as well as by the
Internal Audit Wing of the Principal Accounts Office of the Ministry of
Rural Development.
Social Audit
 Social Audit is to be conducted in every Gram Panchayat at least once in
a year, involving a mandatory review of all aspects. Social Audit Units
(SAU), set up by the State/UT Government under MGNREGA, to be
roped in to facilitate conduct of Social Audit of PMAY-G.
Common Review Mission
 An annual review at the ground level is conducted by the CRM team set
up with an aim to provide valuable understanding of the strategies which
were successful and those which warranted mid-course adjustments.

C. PRADHAN MANTRI GRAM SADAK YOJANA (PMGSY)

1. Brief
1.2 The Pradhan Mantri Gram Sadak Yojana (PMGSY) was launched on 25th
December 2000 with the objective of providing connectivity, by way of an All-weather
Road (with necessary culverts and cross-drainage structures, which is operable
throughout the year), to the eligible unconnected Habitations in the rural areas with a
population of 500 persons and above (Census 2001) in Plain areas. In respect of
39

Special Category States (i.e. Arunachal Pradesh, Assam, Manipur, Meghalaya,

Mizoram, Nagaland, Sikkim, Tripura, Himachal
Himachal Pradesh, Jammu & Kashmir and
Uttarakhand), the Desert Areas (as identified in the Desert Development Programme),
the Tribal (Schedule V) areas and Selected Tribal and Backward Districts (as identified
by the Ministry of Home Affairs and Planning Commission)
Commission) the objective is to connect
eligible unconnected Habitations with a population of 250 persons and above (Census
2001). For most intensive IAP blocks as identified by Ministry of Home Affairs the
unconnected habitations with population 100 and above
above (as per 2001 Census) is
eligible to be covered under PMGSY.
1.3 With a view of ensuring full farm-to-market
farm market connectivity, the programme also
provides for the upgradation of the existing Through Routes and Major Rural Links to
prescribed standards, though
gh it is not central to the programme.
1.4 The PMGSY was launched as 100% Centrally Sponsored Scheme. However,
subsequently, on the basis of the recommendations of the Sub-Group
Sub Group of Chief
Ministers on Rationalization of Centrally Sponsored Schemes the fund
fund sharing pattern
of PMGSY was changed in the ratio of 60:40 between the Centre and States for all
States except for 8 North Eastern and 3 Himalayan States for which it will be 90:10
with effect from 2015-16.
40

2. Target Achievement - Slow pace of work

Physical target set out for each year during the last three years with reasons for
shortfall are outlined below:-

Year Physical Financial [Rs in Cr]

Habitation [in no] Length [in km] Target Achievement
Target Achievement Target Achievement (B.E.)
2016-17 15,000 11,641 48,812 47,447 19,000 17,922.87
2017-18 15,000 11,536 51,000.00 48,713.096 19,000 16862.065
2018-19 15,000 10,482 57,700 49,037.55 15,500 15,417.55

The reasons for delay in achieving the targets can be attributed to the following
reasons:-
(i) Most remote habitations remaining for connectivity;
(ii) Short working season;
(iii) Inadequate execution and contracting capacity;
(iv) Scarcity of construction material;
(v) Difficult terrain;
(vi) Climate change and unpredictable adverse weather in recent years.

The Ministry is reviewing the position continuously and States are provided
requisite assistance to achieve the target of 100% connectivity to all eligible and
feasible habitations at the earliest possible.
2.2 The details of physical progress are elaborated further as under:-
Year Length Completed (in km) Habitation Connected
2016-17 47,457 11,970
2017-18 48,715 11,545
2018-19 49,040 10,468
2019-20(till 28.01.2020) 14,126 1,675

The overall progress of PMGSY since inception till 28.01.2020, States/UTs wise
is given below:
No of Bridge No of Bridge
Road Length Road Length Balanced Road
Sr.No. State Name Work Works
Sanctioned Completed Length
Sanctioned Completed
1 A & N Islands 105.775 0 0 0.000 105.775
2 Andhra Pradesh 16,658.130 288 227 14,432.607 1,772.387
3 Arunachal Pradesh 14,418.972 239 34 8,221.802 6,188.387
4 Assam 29,067.633 1,441 364 23,538.461 5,424.050
5 Bihar 58,939.286 1,133 436 51,536.212 5,502.949
6 Chhattisgarh 41,928.568 387 232 32,638.276 8,126.146
7 Goa 182.740 0 0 155.330 26.890
8 Gujarat 12,726.534 89 43 12,567.833 11.910
9 Haryana 5,614.340 18 18 5,580.962 0.000
10 Himachal Pradesh 22,007.847 106 54 15,882.253 5,859.282
11 Jammu And Kashmir 20,484.285 246 83 11,522.935 8,721.980
41

12 Jharkhand 28,694.730 616 349 23,446.152 4,646.724

13 Karnataka 18,600.545 47 47 18,575.318 0.480
14 Kerala 3,916.460 3 1 3,597.466 288.127
15 Madhya Pradesh 81,030.643 918 463 76,830.871 1,282.949
16 Maharashtra 27,713.909 840 730 26,375.906 743.495
17 Manipur 11,683.940 143 51 7,366.434 4,306.089
18 Meghalaya 4,777.503 112 29 2,027.718 2,744.757
19 Mizoram 4,482.732 0 0 3,349.867 1,120.115
20 Nagaland 4,382.050 53 0 3,869.460 512.590
21 Odisha 65,827.186 578 307 57,625.866 5,950.227
22 Punjab 8,280.032 7 7 8,242.140 3.770
23 Rajasthan 69,594.596 32 10 67,186.571 141.335
24 Sikkim 4,915.492 68 24 3,991.687 873.251
25 Tamil Nadu 19,259.950 131 83 18,296.928 811.363
26 Telangana 11,868.475 336 255 10,646.372 967.617
27 Tripura 5,253.620 75 41 4,391.763 699.115
28 Uttar Pradesh 58,493.513 13 2 56,310.673 1,186.360
29 Uttarakhand 19,154.603 218 77 12,168.188 6,870.125
30 West Bengal 37,199.312 60 0 32,551.009 4,370.757
Total 707,263.401 8,197 3967 612,927.060 79,259.002

2.3 On the physical progress made under PMGSY, the Secreatry, DoRD during the
course of evidence informed the Committee as under:-
"इसके बाद यह कहा गया था िक पीएमजीएसवाई म हैिबटेश स के जोटागट ह, वे कै से
िफ स िकए जाते ह, जब हैिबटेशन बचा ही नह है? जब वष 2000 म यह क म बनी थी, उस
समय यह माना गया था िक परू े देश म 1,78,000 ऐसे हैिबटेश स ह, िजनको जोड़ना होगा।
इन 1,78,000 म हमने यह पाया िक रा य सरकार ने अपनी योजना ओंसे 16,086
हैिजटेश स जोड़ िदए। अनेक है िजटेश स ऐसे ह, जो िक रा य सरकार ने हम िलखकर िदया
िक अब हम िफिजबल नह है, य िक इसम कुछ ही लोग ह, जो जंगल के अंदर ह, उनके िलए
एक क चा रा ता बना हआ है। हम नह लगता िक अब हम फॉरे ट का अ ूवल या ि लयरस
िमल पाएगा, इसिलए भी यह सं या कम हई। एक सझ ु ाव यह आया था िक यह हैिबटेशन है या
राज व गांव है? ये हैिबटेश स ह, ये रेवले यु िवलेज नह ह। यह हमारी गाइडलाइन म िलखा
हआ है। रा य के तर पर भी ये बताया गया है। जो यूिनट है, वह आबादी है। हैिबटेशन अपने
आपम यूिनट नह है। हैिबटेशन ऐसी, िजसम 250 क आबादी हो, 500 क आबादी हो या
उससे अिधक क आबादी हो। ये दो तरह के मापदंड ह। 100 क आबादी हो अगर वह लै ट-
िवंग ए स ीिम म एफे टेड भािवत े म है।"
2.4 Asked about the achievement of PMGSY-I State/UT-wise and target remaining,
the DoRD have submitted the details below:-
"Under PMGSY-I, a total of 6,46,728 km road length and 7,238 long span
bridges have been sanctioned, out of which 5,79,597 km road length and
3,690 long span bridges have been completed. The balance road length
(52,396 km) and bridges are targeted for completion at the earliest.
42

3. Financial Progress
Statement showing budget estimates, revised estimates and actual expenditure
for the last three years and budget estimates for the current year showing separately
capital and revenue expenditure.

The details are as under:-

(Rs in crore)
Year BE RE Release Expenditure@
2016-17[Revenue] 19,000 19,000.00 17,922.87 16,093.05

2017-18[Revenue] 19,000 16,900.00 16862.065 17,307.29

2018-19[Revenue] 19,000 15,500.00 15417.55 23,370.02

2019-20 [Revenue] 19,000 14,070.07 8943.63 14,347.67

(up to 31.12.2019)
@including State share

3.2 The Committee came to know during the examination of the Demands for
Grants of the DoRD that the RE for 2019-20 was pegged back to Rs. 14,070.07 crore
from the BE of Rs. 19,000 crore under PMGSY. Enquired about this, the DoRD have
stated as below:-
"Budget allocation under PMGSY depends on Action Plan drawn
by the Ministry in consultation with the State Government which is based
upon their absorption capacity; balance works in hand, unspent balance
available. The actual release of funds to the State Governments for the
projects sanctioned however is based on the actual physical and
financial progress, performance in tendering of works and fulfilling of
certain conditions laid down as per the programme guidelines. Further,
many a times, the States could not perform as per the action plan due to
reasons beyond their control such as unpredictable adverse weather,
unavailability of raw materials etc resulting in under-utilization of funds
vis-a-vis the allocation. It may also not be out of place to mention that
road construction progresses in stages and expenditure on length
constructed would vary according to the stage at which the road is being
constructed.
Budget projections for the Scheme are made depending upon the
amount of works likely to be completed by the various State Government
during the Financial year . Accordingly funds are placed at the disposal
of the State Government which is based on the Annual Action Plan
drawn by the Ministry in consultation with various State Government
wherein the State is given annual target of road length vis a vis fund to
complete the said target. The progress of works is monitored closely and
funds are accordingly released in order to avoid unnecessary parking of
the funds with the States. Constructions of roads in FY. 2019-20 has
43

been slow on account of extended rainfall and hence lower pace of

expenditure. Besides most of the left over works are in the states with
difficult terrain and most remote areas. The raw material is also brought
from very distant locations, besides these works are progressing slowly
on account of land availability, issues like forest clearance, land disputes
etc. There is strict monitoring of reasons of funds based on unspent
balances available with the states.
Hence at RE stage the requirements of funds were re assessed
and reduced."
3.3 Acquainting itself of the fact that only Rs. 8,943.63 crore have been released as
Central share upto 31.12.2019, the Committee wanted to know the reason.
Responding to this query, the DoRD have submitted as under:-
"Release of funds to the States is based upon their absorption capacity;
balance works in hand, unspent balance available. Further, the pace of
road construction gets momentum post monsoon from November
onwards and as such maximum road construction and fund utilization
occur during the months of November onwards. As on 29.01.2020, Rs
10137.50 crore have been released to States against RE of Rs 14070.07
crore and before closure of Financial Year entire funds will be released
to States."

To the query about the inconsonance, between physical and financial progress
witnessed under PMGSY, during the course of evidence, the Secretary, DoRD clarified
in this regard as under:-
"एक बात यह कही गई थी िफिज़कल और फाइनिशयल ो ेस, जो आप पीएमजीएसवाई क
िदखा रहे ह, उसम कोई तारत य नह है। There is no harmony between the level
of financial expenditure and the level of physical achievement. ऐसा इसिलए
होता है िक जब आप सड़क बनाते ह, जो िक िबटुिमनस रोड है, उसम अलग-अलग लेयस म,
अलग-अलग अनपु ात म खचा होता है। जब आप िम ी का काम कर रहे ह या ेड-1, ेड-2
मेटल िबछा रहे ह तो उसम आप लंबाई ज र अचीव करते ह, लेिकन आप खचा कम करते ह।
जब आप उस पर िबटुिमन-कोलतार क लेयर िबछाते ह तो उसम यादा खचा होता है,
because of the cost of material used. इस कारण वह िडि पे सी होती है। अंत म
जब रोड हर मायने म क लीट हो जाती है तो जो उसक एि टमेटेड कॉ ट है और जो
ए सपेि डचर है, उसम कोई िडफरस नह रहता है। यह इसक वजह है।"
4. Quality / Climate Aspects
The issue of quality of constructed roads and resilience to the area -specific
climate is a paramount importance. Keeping this in view, the Committee wanted to
know about the efforts of DoRD to address such issues. The Department have
44

responded to this as under:-

"The 8 North Eastern States viz Arunachal Pradesh, Assam, Manipur,
Meghalaya, Mizoram, Nagaland, Sikkim, Tripura and 3 Himalayan States
Himachal Pradesh, Uttarakhand, UTs of Jammu & Kashmir are most
affected by insistent rains throughout the year. Due to increased rainfalls
during rainy seasons, the States are unable to execute the BT works
using hot bitumen mix and to overcome this issue Cold Mix technology
was adopted to improve the progress of construction of roads due to
availability of longer working seasons and this technology is an
environmentally friendly technology and is not equipment intensive and
thus more compatible and more resilient to the climate in implementing
Cold Mix technology in the above high rainfall States. Cold mix
technology facilitates faster black-topping of roads simply because it
requires no heating and no expensive types of equipment. Studies of
selected roads were conducted and the performance of these roads was
found satisfactory. A performance evaluation Study of these roads was
initiated on Pan-India basis to assess the performance of these roads."
5. Fixation of Accountability and Issues related to Tendering
Asked about the tender system and functioning of contractors in PMGSY, the
DoRD have elaborated in its written reply mentioned below:-
"A well-established procedure for tendering, through competitive
bidding, is currently followed for all works under the Programme. As
provided in the guidelines of the programme, the Executing Agencies are
following the Standard Bidding Document (SBD) for tendering of
Construction and Maintenance works of Roads under Pradhan Mantri
Gram Sadak Yojana. The SBD also has been made State specific based
on 36 parameters be provided at State level in order to attain smooth
and transparent procurement of works under the scheme. Time frame of
various activities in the tendering process is specified in clause 8.1.2 of
Operation Manual for PMGSY works.
All the States are inviting e-tender for all works irrespective of
projects cost w.e.f 2009. Most of states are using
“www.pmgsytenders.gov.in” (GePNIC) portal for e-tendering of works
through which it is possible to monitor real time progress of the tenders."

6. Future of the Yojana - PMGS-II and PMGSY-III

Further seeking details about the progress made under PMGSY-II, the DoRD in
its written reply have submitted as under:-
"Under PMGSY-II, against total allocated length of 50,000 km, a total of
49,832 km road length and 662 long span bridges have been sanctioned
to 28 states as per proposals received. All sanctions under PMGSY-II
have been given. Out of the sanctioned length 31,947 km road length
45

and 259 long span bridges have been completed. The balance road
length (17,549 km) and bridges are targeted for completion by Ma
March,
2020."

6.2 About the future of PMGSY, the DoRD have stated as per details below:
below:-

2019-20 2020
2020-21 2021-22 2022-23
23 2023-24
•Approval •PMGSY
PMGSY-II •PMGSY III: •RCPLWE •PMGSY III:
and Rollout 100% 100% Phase II: 80%
PMGSY III Completion sanctions 100% completion
•Complete •LWE
LWE 100% Completion
100% Completion
Sanction in
PMGSY-II

6.2 Replying to a query raised during the course of evidence regarding the
bottlenecks faced by PMGSY, the Secretary, DoRD stated as under:-
46

"सर, पीएमजीएस वाई क सड़क म सबसे बड़ी ॉ लम यह है िक हम समय पर वन िवभाग से

एन.ओ.सी. ा नह होती है। इसिलए उस काय म साल -साल गज ु र जातेह। हम उसको
ीमलाइन करने का यास कर रहे ह। "
7. Monitoring and Inspection
On being asked by the Committee about the steps undertaken by DoRD to
keep a check on the flagrant flouting of norms related to the maintenance and upkeep
of roads post construction, the DoRD have submitted its detailed response as below:-
"As a measure of further enhancing the focus on maintenance of
roads during the defect liability period and also stream line the delivery of
routine maintenance of PMGSY roads, the Ministry has decided to
implement the Electronic monitoring of Maintenance of PMGSY roads
(eMARG) in all the States. For this purpose, the Ministry would
customise and improve the e-Marg application developed by NIC, MP
and being used by MPRRDA. In order to use the expertise and
experience in the development and implementation of eMARG, the
Ministry has engaged the services of NIC, MP for the pan India
implementation.
The Electronic Monitoring of Maintenance of Rural Roads under
PMGSY (eMARG) is a GIS-based Enterprise, e-Governance solution to
aid and assist the officials, Contractors, Banks and general public. It is
an end-to-end solution, which provides restricted role-based access via
internet. E-MARG is re-orientation from Discretion-based system to a
uniform standardized transparent process oriented system. E-MARG is
fusion of various technologies GIS, Cryptography, Open Source, Remote
Sensing, 3M (Mobile, Messaging & Mail). The MoU was signed between
NRIDA, NIC and NICSI on 27.12.2018. The project period will be 36
months including 12 months for development and 24 months
maintenance period. The project would be rolled out in all the states in
phases.
National e-MARG is in the process of development by NIC Bhopal
and training and workshops are being held at State’s PIUs level by
NRIDA, for its implementation by all States.
An MoU has been proposed to be signed between MoRD and
concerned States for maintenance of all PMGSY roads, even beyond 5
years, including routine and periodic maintenance."

7.2 The Secretary, DoRD throwing light on the monitoring aspect, during the course
of evidence clarified as under:-
"सर, पीएमजीएसवाई म भी यह ावधान है। उसको एिडशनल परफॉमस िस यो रटी कहते ह।
वहठे केदार से ली जाती है। अगर उसने काम घिटया िकया या वह भाग गया, मान लीिजए, इतने
कम पैसे िलए, उससे काम नह हआ और वह भाग गया तो वह एिडशनल परफॉमस िस यो रटी
एनकै श क जाती है।" सर,जो माननीय सभापित महोदय ने कहा िक नॉमल कॉ ै टर और जो
47

कॉ ै टर ए सेिस ली लो वोट कर रहा है और दोन के िवदहै ड अमाउ ट एक समान न ह

तो इसको ए जािमन करके आपको बताएंगे। सर, जो एजसीज ह, जो पीएमजीएसवाई म काम
नह कर रही ह या िज ह ने अधरू ा काम िकया है, खराब वािलटी का काम िकया है, उनके
बनाए हए पलु टूट कर िगए गए ह तो उनका यह होता है िक हमारे पास रा यवार आंकड़े ह िक
िकतने कॉ ै टस लैक-िल ट िकए गए, िकतन से रकवरी हई, िकतन को हमेशा के िलए
बाहर कर िदया गया है, हम यह आपसे शेयर कर लगे।

D. DEENDAYAL ANTYODAYA YOJANA - NATIONAL RURAL LIVELIHOOD

MISSION (DAY-NRLM)
An Insight
A. Launched in 2011, the Deendayal Antyodaya Yojana-National Rural
Livelihoods Mission (DAY-NRLM) aims at mobilizing about 8 to 10 crore rural
poor households into Self Help Groups (SHGs) in a phased manner and
provide them long-term support such that they diversify their livelihoods,
improve their incomes and quality of life.
B. All “automatically included” households and all households with “at least
one deprivation” as per the Socio Economic and Caste Census (SECC) 2011
data constitute the target group of Deendayal Antyodaya Yojana-National Rural
Livelihoods Mission (DAY-NRLM). The list of the rural poor is also validated by
Participatory Identification of the Poor (PIP) which is further vetted by the Gram
Sabha.
C. The major components of the DAY-NRLM are:
a. Promotion of Sustainable Institutions of the poor
b. Ensuring access to financial services
c. Promotion of diversified and sustainable income sources
d. Promotion of Skill Development and Access to Jobs
e. Promotion of Social Inclusion and Human Development

Annual Progress in FY 19- % Achievement Cumulative

S.No. Indicator Unit
Target 20 (Nov'19) (Nov'19) Progress
1 No. of districts covered No. 33 23 70% 646
2 No. of blocks covered No. 793 720 91% 5971
No. of households mobilized into
3 Lakh 93.7 78.4 84% 657
SHGs
4 No. of Self Help Groups promoted Lakh 8.09 7.34 91% 59.4
No. of Village Organizations
5 Lakh 1.1 0.35 32% 3.38
promoted
48

No. of Cluster Level Federations

6 No. 3913 2093 53% 30012
promoted
Rs.
7 Capitalization support provided 3873.1 1387 36% 8520.1
Crore
8 No. of SHGs accessed bank credit Lakh 30.9 23.8 77%
Rs.
9 Amount of Bank Credit accessed 67076 39607.9 59% 2,65,319
Crore
Amount of Bank Loan Rs.
10 100986 89670.9 89%
outstanding Crore
11 No. of mahila kisans supported* Lakh 33.6 18.72 56% 63.9
No. of custom hiring centers
12 No. 5540 2334 42% 11426
established*
13 No. of HHs with agri-nutri garden* Lakh 12 5.07 42% 33.71
No. of entrepreneurs supported
14 No. 44982 22357 49.7% 73128
under SVEP

2. Component and Sub-Schemes

Promoting Institutions of Poor: Strong quality institutions of poor such as
SHGs and their federations are set up on a priority basis.
Training, Capacity Building and Skill Building: Systematic and multi-
pronged approach has been adopted for providing capacity building to SHGs, their
federations, government functionaries, bankers, NGOs and other stakeholders.
Revolving Fund: A revolving fund of (Rs.10,000 to 15,000) is provided to
SHGs as an incentive to inculcate the habit of thrift and accumulate their own funds
towards building their corpus to meet the credit needs in the long-run and immediate
consumption needs in the short-run.
Community Investment Fund (CIF): Community Investment Support Fund is
routed to SHGs through federations (primary and secondary level) to support
development of suitable livelihoods of members and to initiate collective activities,
wherever feasible.
Interest Subvention: DAY-NRLM has a provision for interest subvention to all
eligible SHGs. The districts have been classified as Category I and Category II
Districts, according to the modality of interest subvention provided. In Category I
districts (250 district in the country) all women SHGs can avail loans up to Rs.3 lakh
per SHG at 7% rate per annum. Further, these SHGs are eligible for an additional
interest subvention of 3% on prompt repayment of loan, reducing the effective rate of
49

interest to 4%. In Category II districts (remaining districts), all women SHGs meeting
DAY-NRLM eligibility norms can avail loans up to Rs.3 lakhs per SHG at 7% rate of
interest per annum.
Major Sub-Schemes
Mahila Kisan Sashaktikaran Pariyojana (MKSP): Launched in 2010-11, is a special
program for livelihood enhancement under DAY-NRLM. It is a concerted effort to
recognize the role of women in agriculture. Investment is made to enhance their
capacities, increase their income, and encourage participation in agriculture and allied
activities.

Start-up Village Entrepreneurship Programme (SVEP): Start-up Village

entrepreneurship Programme (SVEP), the sub-scheme under DAY-NRLM develops an
eco-system for supporting small businesses in rural areas.

Deen Dayal Upadhyay — Grameen Kaushalya Yojana (DDU-GKY): Scale up for

existing skills and placement projects through partnership mode as one of the best
investments in youth, and provide impetus to livelihood opportunities in emerging
markets.
e. Rural Self Employment Training Institutes (RSETIs): DAY-NRLM
encourages public sector banks to set up RSETIs in all districts of the country. RSETIs
transform unemployed rural youth in district into self-employed entrepreneurs through
need-based experiential training program followed by hand holding support and bank
linkage.
3. Fund Allocation/ Utilization
(Rs. in Crore)
Central
Sl.No. Year Allocation Central Release % Release
(R.E)
1 2016-17 3168.15 3165.89 99.93
2 2017-18 4350.83 4327.82 99.92
3 2018-19 5783.50 5783.48 100.00
4 2019-20 9024.00 6022.77* 66.74*
*As on 31.12.2019.
50

Year wise BE/RE and actual expenditure for the years 2017-18, 2018-19,
2019-20 and 2020-21 (Capital and Revenue expenditure)are given below:

Sl. B.E R.E Actual Expenditure

Year
No. Revenue Capital Revenue Capital Revenue Capital
1 2017-18*** 4500.00 0.00 4350.83 0.00 4327.82 0.00
2 2018-19# 5750.00 0.00 5783.50 0.00 5783.48 0.00
3 2019-20## 9024.00 0.00 9024.00 0.00 6022.77 (as 0.00
on
31.12.2019)
4 2020-21### 9222.00

*** This includes Rs.300.00 Crore for DRDA Administration and Rs. 35.00 Crore for PMRDF.
# This includes Rs.350.00 Crore for DRDA Administration and Rs. 7.00 Crore for PMRDF.
## This includes Rs.245.00 Crore for DRDA Administration and Rs. 1.00 Crore for PMRDF.
###This includes Rs.245.00 Crore for DRDA Administration.

3.2 Details of Interest-Subvention to SHGs as provided by the DoRD are as under:-

Disbursal of Interest Subvention to SHGs
2013-14 to 2019-20 (Amount in Rs Lakhs)

I.S. Amount in Total IS Amount

I.S. Amount in Category I Category II Districts
Sl State Name
Districts*
- 0.10
1 ANDAMAN & NICOBAR 0.10
17803.00 268048.41
2 ANDHRA PRADESH 250245.41

3 ARUNACHAL PRADESH 15.55 15.55

4 ASSAM 618.89 37.99 656.88

5 BIHAR 18973.37 93.37 19066.74

6 CHHATISGARH 3994.77 87.97 4082.74

7 GOA 234.59 234.59

8 GUJARAT 807.65 132.69 940.34

9 HARYANA 346.63 0.87 347.50

10 HIMACHAL PRADESH 713.07 43.77 756.84

11 JAMMU AND KASHMIR 589.15 104.02 693.17

12 JHARKHAND 1864.05 8.75 1872.80

13 KARNATAKA 33635.36 6458.00 40093.36

14 KERALA 10579.31 5107.70 15687.01

15 MADHYA PRADESH 1789.17 89.46 1878.63

16 MAHARASHTRA 3361.62 698.73 4060.35

- 5.58
17 MANIPUR 5.58
- 68.55
18 MEGHALAYA 68.55
- 7.86
19 MIZORAM 7.86
- 22.60
20 NAGALAND 22.60
51

1412.24 27475.70
21 ODISHA 26063.46
- 280.54
22 PUDUCHERRY 280.54
0.59 47.46
23 PUNJAB 46.87
- 1012.03
24 RAJASTHAN 1012.03
- 53.08
25 SIKKIM 53.08

26 TAMIL NADU 19916.34 4117.47 24033.81

27 TELANGANA 84576.67 15386.15 99962.82

0.28 184.01
28 TRIPURA 183.73
45.45 425.55
29 UTTAR PRADESH 380.10
5.26 63.85
30 UTTARAKHAND 58.59
2196.71 38941.46
31 WEST BENGAL 36744.75
53830.47 551020.01
TOTAL 497189.54
* Claims from banks till 30 September 2019

4. Physical Performance
Financial year wise physical progress on promotion of Self Help Groups (SHGs),
Village Organisations (VOs), Cluster Level Federations (CLFs), release of Revolving
Fund (RF) and Community Investment Fund (CIF)-

Financial Promotion of Promotion of Promotion of Release of RF Release of CIF

Year SHGs VOs CLFs to SHGs to SHGs
Tar Achvmt Tar Achvmt Tar Achvmt Tar Achvmt Tar Achvmt
FY 2017-18 6.80 7.88 0.50 0.50 0.05 0.04 4.72 4.83 2.70 2.50
(No. in lakh)

FY 2018-19 9.11 9.85 .48 .61 .04 .07 6.60 3.89 3.35 2.13
(No. in lakh)
FY 2019-20 8.08 8.07 (till 1.1 .40 (till .04 .02(till 7.47 2.60 (till 4.52 1.20 (till
(No. in lakh) Dec’19 Dec’19 Dec’19 Dec’19 Dec’19

4.2 When asked about the slow achievement of result in the number of village
organization promoted and capitalization support provided. The DoRD have submitted
in their written reply as mentioned below:-

"There has been shortfall in the number of Village Organisations

promoted against the targets due to various reasons. There were initial
delays due to election code of conduct being in place. There have been
delays in a few states in release of funds from the state treasury to the
State Rural Livelihoods Mission. This has caused delays in release of
capitalized support funds to the community institutions. However, efforts
have been made to achieve the set target on the promotion of Village
Organisations and the release of community funds through regular
52

follow-up with underperforming states. To address the state specific

issues, review cum planning workshops have been conducted in this
month with all states in order to discuss reasons for the shortfalls and
plan for achieving the targets to the extent possible in the remaining
period of the financial year. Communications are regularly sent at senior
level to States for ensuring timely release of funds to the SRLMs.
Progress till December 2019 on promotion of VO is 46% and
release of Community Fund (RF & CIF) is 41%."

4.3 Enquired further about the progress made by DoRD in attaining its goal of
reaching out to all rural poor households and to have an impact on their livelihoods
significantly by 2023-24, the DoRD have responded through its written reply as
produced below:-
"As on December 2019, the Mission is being implemented in
5,982 blocks in 646 districts across all 28 States and 7 UTs. It is
expected that the Mission will enter into most blocks during 2020-2021
except a few blocks in some NE States and UP that have been late
starters under the Programme.
Cumulatively, 6.67 crore women have been mobilized into 60.18
lakh SHGs. Further, the SHGs have been federated into 3.44 lakh village
level federations and more than 30,424 cluster level federations. It is
expected that the Mission will work with over 9 crore rural households by
2023-24. Cumulatively, these community institutions have been provided
Rs. 8730.90 crore as capitalization support. Further SHGs have
leveraged a loan of Rs. 2.69 lakh crore from Banks since 2013-14.A total
of 2.77 lakh CRPs (Community Resource Persons) are supporting the
various activities of the Mission Implementation. In addition, more than
63 lakhs Mahila Kisans have been supported under Annual Action Plan
(AAP) & MKSP projects and 79506 enterprises have been promoted
from across 23 states "

4.4 When enquired about the progress of NRLM during the course of evidence, the
Secretary, DoRD replied as below:-
“”एनआरएलएम को दन िकए जाने क आव यकता है। हम आपक बात से पूरी तरह सहमत
ह। माननीय िव मं ी महोदया काइ सबार का जो बजट का अिभभा षण था, उसम उ ह ने कहा
था िक वे एनआरएलएम को दन करगी। अभी 58 लाख से कुछ यादा मिहला वयं सहायता
समूह ह। दिनंग के तहत हम इस नंबर को अगले दो साल म 70 लाख तक ले जाने क
योजना रखते ह।“”
53

5. Universal Social Mobilization through Self Help Groups (SHGs)

About the progress made by the Self Help Groups (SHGs) in attaining the
desired objective set under DAY-NRLM, the DoRD have furnished their response as
under:-
"DAY-NRLM, with its women centric and women-led approach and
focused on the four key pillars of universal social mobilization, financial
inclusion, economic inclusion and convergence provides a strong
foundation for women’s empowerment. Besides the physical
achievements mentioned in reply Point number 26 above, SHG
federations are playing critical role in social development related
interventions also. Discussion on social development aspect is one of the
common agenda in SHG and federations meeting which has resulted
into the mass awareness and initiative on social development led
practices. SHG Federations led initiative on building of toilets and
behavioral change towards making Gram Panchayat Open Defecation
Free (ODF) in most of the SRLMs. SHGs are also participating in
Poshan Abhiyan to support the line department in conducting its
activities. The Institute of Rural Management, Anand was entrusted to
carry out the independent assessment of design, strategy and impacts of
DAY-NRLM. Some of the key results indicate that the households in the
treatment areas:
(i) have a higher number of livestock assets as compared to control
areas- On an average, each household in a Mission village had more
than 2.34 productive livestock assets compared to a similar household in
non-Mission village
(ii) show a higher proclivity to save in formal institutions;
(iii) have a higher loan size(about 67% more than the loan size in the
control areas)and are more likely to borrow from formal financial sources;
NRLM households also pay a lower rate of interest
(iv) have 22% higher (net) income than the households in the control
areas, largely due to income from enterprises. On an average, each
NRLM village had 11 enterprises more than the non-NRLM villages –
suggesting livelihood diversification in NRLM villages.
participate more in PRIs -NRLM households participate 3 times more
than their counterparts"

5.2 DoRD have further elaborated upon the number of SHG members and their
skilling through written submission as below:-
"6.67 crore SHG members of DAY-NRLM are being provided continuous
training on the various activities of the DAY-NRLM especially on financial
literacy, fund management, credit investment plan etc. to manage the
SHGs and their federations. Cumulatively, these community institutions
54

have been provided Rs. 8730.90 crore as capitalization support. Further

SHGs have leveraged a loan of Rs. 2.69 lakh crore from Banks since
2013-14. Continuous training of the DAY-NRLM has resulted into
promotion and management of SHG Federations. All these trainings are
being conducted with the support of more than 60,000 master trainers
and 2.77 lakh trained CRPs to provide need-based trainings to the SHG
members."
5.3 On the target that each SHGs would be able to leverage a cumulative bank
credit of Rs. 10,00,000/- in repeat doses, such that on the average each member
household access a cumulative amount of Rs. 1,00,000/-, the DoRD in its written note
have detailed the present status as below:-
"One of the key mandate of DAY-NRLM is to ensure that women SHGs
under the Mission are able to leverage cumulative bank credit of Rs 10
lakh in repeat doses within a period of 5-7 years from its formation. Since
the launch of the Mission, women SHGs have cumulatively leveraged Rs
2.7 lakh Crores from the banking system."

6. Role of Banks in the implementation of DAY-NRLM & the setting up of

RSETIs

6.2 Banks play a vital role in implementation of the Mission. The various roles
played by the banks as per the written submission provided by DoRD are as under:-
Banks play a vital role in implementation of the Mission. The various
roles played by banks are as follows:
a) Opening of Savings account of SHGs: The role of banks
commence with opening of accounts for all the Women SHGs including
members with disability and Federations of the SHGs. The SHGs
engaged in promoting of savings habits among their members would be
eligible to open savings bank accounts.
b) Opening of Savings account of Federation of SHGs: Banks
also open savings account of Federations of SHGs at village, Gram
Panchayat, Cluster or higher level. These accounts are categorized as
savings account for ‘Association of persons’.

c) Facilitate Transaction in Savings account of SHGs and

Federation: SHGs and their federations may be encouraged to transact
through their respective saving account on regular basis.

d) Promotion of digital transactions by SHGs and their

members: To facilitate this, banks have enabled transactions in jointly
operated savings account of SHGs and their federations with inter-
55

operable facility at retail outlets managed by Business Correspondent

Agents.

e) Credit linkage of SHGs: Banks extend credit facilities to eligible

SHGs which is further used by individual members in meeting their social
needs, high cost debt swapping, construction or repair of house,
construction of toilets and taking up sustainable livelihoods by the
individual members within the SHGs or to finance any viable common
activity started by the SHGs. Credit Linkage to SHGs by banks are
guided by the Master Circular on DAY-NRLM issued by Reserve Bank of
India every year. Banks are permitted to lend collateral free loans upto
Rs 10 lakhs per SHG.

6.3 Rural Self-Employment Training Institutions (RSETIs) is a Bank’s led initiative of

Ministry of Rural Development, set up with dedicated infrastructure in each district of
the country with the objective of identifying, motivating, imparting training for skill
development and skill up gradation and facilitating the unemployed rural poor youth in
the age group of 18-45 to take up self-employment entrepreneurial ventures. RSETIs
are sponsored, managed and run by Banks with active co-operation from the
Government of India and State Governments.

6.4 Providing details of the fully functional RSETIs and the nature of trainings
imparted by them, DoRD have outlined the specifics as below:-
As on 31.12.2019 there are 585 functional RSETIs pan India, located in 27 states
and 6 UTs. The list of RSETIs State/UT wise is given below:-

LIST OF FUNCTIONING RSETIs as on 31.12.2019

Sl. No. of
Name of the State/ Union Territory
No. RSETIs
1 Andhra Pradesh 17
2 Arunachal Pradesh 1
3 Assam 26
4 Bihar 38
5 Chhattisgarh 18
6 Gujarat 28
7 Haryana 21
8 Himachal Pradesh 10
9 Jharkhand 25
10 Karnataka 33
11 Kerala 14
12 Madhya Pradesh 50
13 Maharashtra 35
14 Manipur 1
56

15 Meghalaya 5
16 Mizoram 1
17 Nagaland 1
18 Odisha 30
19 Punjab 17
20 Rajasthan 35
21 Sikkim 1
22 Tamil Nadu 30
23 Telangana 10
24 Tripura 5
25 Uttar Pradesh 75
26 Uttarakhand 13
27 West Bengal 19
Total States 559
1 UT Andaman & Nicobar Islands 1
2 UT Dadra & Nagar Haveli 1
3 UT Lakshadweep 1
4 UT Puducherry 1
5 UT Jammu & Kashmir 21
6 UT Ladakh 1
Total UTs 26
33 GRAND TOTAL 585

YES. The training programmes are mainly oriented towards entrepreneurship

development, and they are market and job oriented. All the activities identified for
training are from process, product and Agri/Allied activities which are taken up pan
India.
7. Deendayal Upadhyaya Grameen Kaushalya Yojana - DDU-GKY

With an ambitious agenda to benchmark wage placement-linked to global

standards, Ministry of Rural Development (MoRD) revamped the Placement linked skill
development program under National Rural Livelihood Mission as Deen Dayal
Upadhyaya Grameen Kaushalaya Yojana (DDU-GKY) on the 25th September, 2014.

7.2 The physical and financial performance of the DDU-GKY over the last three
financial years till date is as under:-

Financial Progress:

Financial Year BE/RE Funds Released Unspent balances

(Rs crore) (Rs crore) (Rs crore)
2017-18 811.55 803.41 8.14
2018-19 1215.31 1215.29 0.02
2019-20 1849.99 1397 452.99
57

Physical Progress:

FY 14-15
Target Trained Placed
210000 43038 21446
FY 15-16
Target Trained Placed
177986 236471 109512
FY 16-17
Target Trained Placed
200014 162586 147883
FY 17-18
Target Trained Placed
200000 131527 75787
FY 18-19
Target Trained Placed
200000 240438 135502
FY 19-20 till Jan 27 2020
Target Trained Placed
250000 185749 124192

7.3 Responding to the query of the Committee about the result achieved so
far by DDU-GKY in terms of the skills imparted to the rural youths so far, the
DoRD have submitted in its written reply as below:-
"DDU-GKY trained candidates go for placement in the
manufacturing facilities through project implementation agencies.
A total of 531 trades of 52 Sectors are being catered to by DDU-
GKY. The State /UT wise details are annexed as under”.
58

Details of Statewise and Sector wise trained numbers under DDU-GKY as on 29th Jan 2020
BFSI-
Banking, LSC- TOH-
AMT- Financial CON- ELT- HEL- Logistics TEL- Tourism
S. APL- ELC- IIT-IT- RAL- SEC- Other Grand
State Name Automoti services Constructio Electronic Healthcar and Supply Teleco and
No Apparel Electrical ITES Retail Security Sector Total
ve and n s e Change m Hospitalit
Insurance Management y
(BFSI)
ANDHRA
1 PRADESH 1603 3611 367 3183 1326 2902 3969 15709 4001 23928 2043 1077 3078 4372 71169
2 ASSAM 1132 5546 3066 739 418 619 5141 8236 1250 4594 2132 6540 8566 443 48422
3 BIHAR 788 3807 389 1834 1189 773 5286 11188 1188 12659 1961 417 3183 1468 46130
CHHATTISGA
4 RH 1328 1282 1584 1452 1141 1277 1826 4593 2986 5020 744 3618 2521 2418 31790
5 GUJARAT 499 2565 938 726 178 215 1378 4478 1025 1884 971 835 1249 817 17758
6 HARYANA 733 233 892 349 360 88 402 2300 700 10571 725 10260 2796 299 30708
HIMACHAL
7 PRADESH 546 300 832 303 558 573 224 1041 241 4618
JAMMU and
8 KASHMIR 80 787 891 609 211 173 1122 1343 3546 59 179 2156 678 11834
9 JHARKHAND 837 13998 2080 2734 661 1950 2414 4454 1585 3009 601 2269 2713 1137 40442
10 KARNATAKA 403 7183 504 1616 1054 9309 9845 865 3618 3285 2079 39761
11 KERALA 3187 3079 3180 1291 799 1041 3970 11704 1080 9417 327 2408 5607 2590 49680
MADHYA
12 PRADESH 1316 3815 2294 311 1203 764 1250 9704 3182 17317 819 4085 2073 369 48502
MAHARASHT
13 RA 953 2054 632 671 1084 801 3015 9479 2087 8833 1677 504 5831 2847 40468
14 MANIPUR 306 70 271 225 70 803 1745
15 MEGHALAYA 156 596 550 177 311 47 1837
16 MIZORAM 21 22 239 170 88 13 553
17 NAGALAND 101 68 279 513 238 1199
59

18 ODISHA 4299 47552 2245 13335 13288 2563 10375 19828 2242 17810 3380 2763 19865 8366 167911
19 PUNJAB 73 2249 400 450 644 234 581 1322 1779 457 1171 9360
20 RAJASTHAN 637 6349 3442 1048 2483 1544 2724 15908 3818 9662 5466 961 7266 1148 62456
21 SIKKIM 45 45 51 78 173 392
22 TAMIL NADU 2935 6150 354 506 532 386 3173 11027 1120 2233 1401 2028 31845
23 TELANGANA 677 548 1512 5620 467 3024 3081 11158 3856 8216 372 716 2732 4205 46184
24 TRIPURA 1139 1092 606 10 1347 2451 61 6706
UTTAR
25 PRADESH 2639 9919 4263 4777 5092 2436 7454 36208 1881 11985 5398 3906 15522 7407 118887
UTTARAKHAN
26 D 155 30 91 390 191 256 226 636 28 2003
WEST
27 BENGAL 399 885 3519 1806 498 959 692 3444 1123 2771 1443 34 3384 1009 21966
Total 24796 123830 32728 41550 31230 23651 62389 192300 33775 165446 29833 47540 99606 45652 954326
Old Candidates for which trade wise classification not available 34520
Grand Total 988846
60

7.4 Further enquiring whether DDU-GKY has been successful in the social
inclusion of candidates through mandatory coverage of socially disadvantaged groups,
the Department in its reply have stated as under:-
"The Deen Dayal Upadhyaya Grameen Kaushalaya Yojan (DDU-GKY)
has been successful in the social inclusion of candidates through
mandatory coverage of socially disadvantaged groups. Out of Total
trained number of 988846, the inclusion of various social disadvantaged
group is as follows:

S.No Category Trained

1 Training Completed SC/ST Till Date 465961
Training Completed Minority Till
2 Date 151101
Training Completed Women Till
3 Date 456347

8. Monitoring Aspect

DAY-NRLM has instituted comprehensive Monitoring and Evaluation (M&E) and

Management Information systems (MIS).

The Mission has made substantial progress towards instituting a

comprehensive MIS covering all community institutions and Mission implementation
units during the year. The following MIS modules are operational and are being used
by the Mission.

 Module-1–SHG Profile Database Module: This module facilitates uploading of

basic details of all SHGs including individual Aadhar numbers and bank account
details. This module facilitates access to all basic information about SHGs
under DAY-NRLM fold including bank account details of the SHG and the
members. At present, about 55.46 lakh SHG profiles are available in DAY-
NRLM MIS.
 Module-2-VO and CLF Profile Module: This module enables all Mission units to
upload basic details of all VOs and CLFs promoted including their bank details.
 Module-3-Capacity Building and Training Module: This module has been
designed to capture information training and capacity building provided to
Mission staff, CRPs, trainers, livelihood resource persons, MBKs, BKs and
other types of social capital. Information collected through the module would
facilitate not only planning of training and capacity building programmes but
61

also to identify requirements of trainers as well as financial resources for

training.
 Module-4-HR Module: This module facilitates collection of basic details of all
Mission staff including their qualifications, thematic area, experience, date of
joining and exit from the Mission, where applicable. The information collected
through this module can be used by the Mission units to plan their human
resource policies including recruitment, training and performance assessment.
 Module-5-Community Cadre Profile Module: This module has been designed to
capture profiles of all community cadres engaged by the Mission units as well
as the community institutions in all intensive blocks. Information on master
bookkeepers, internal CRPs, master trainers and all other types of resource
persons including livelihood resource persons, community service
professionals, gender resource persons etc., is collected through this module.
This module is intended to ensure optimal deployment and use of community
resource persons. This can also be used for planning and implementation of
capacity building programmes for CRPs as well as community institutions. An
important feature of this module is that profiles of up to 20 master trainers from
each block are being collected such that the State Missions can use them for
building the capacities of community institutions.
 Module-6-Fund Disbursement Module: This module facilitates tracking of
information on Mission funds provided to community institutions. This has also
been designed to facilitate online application, sanction and disbursal of funds to
the community institutions in a transparent manner.
 Module-7-Commodity Module: This module has been designed to collect
information on 5 to 10 key commodities which have potential for livelihood
development from each intensive block. The information collected can be used
for value chain development, development of livelihood clusters around, key
commodities, market linkage, skill development etc.
 Module-8-Monthly Progress Report Module: As design and development of a
full-blown transaction-based system is a lengthy process, a monthly progress
report module was designed and used to capture progress of the Mission on
different parameters at monthly intervals. Information collected through this
module as well as others are used to generate a series of reports listed below:
o SHG Profile based reports ‘G’-series (13);
o MPR based reports ‘R-series’ (22);
o Fund disbursement Reports (18);
o Federation Report (1);
o HR reports (4);
o Community Cadre Profile Module (4); and
o Commodity Module (6)
All these reports are automatically generated at monthly intervals and can be
accessed from the Mission portal (www.aajeevika.gov.in).
62

E. NATIONAL SOCIAL ASSISTANCE PROGRAMME (NSAP)

1. Background

The Directive Principles of State Policy of the Constitution of India enjoin upon
the State to undertake within its means a number of welfare measures, targeting the
poor and the destitute in particular. Article 41 of the Constitution of India directs the
State to provide public assistance to its citizens in the case of unemployment, old age,
sickness and disablement as well as in other cases of undeserved wants, within the
limit of State's economic capacity and development. Social security, invalid and old
age pensions figure as Items 23 and 24 of the 7th Schedule of the Constitution of India
in the Concurrent List. It is in compliance of these guiding principles, that the
Government of India introduced on Independence Day, 1995 the National Social
Assistance Programme (NSAP) as a fully Centrally Sponsored Scheme targeting the
destitute, defined as any person who has little or no regular mean of subsistence from
his/her own source of income or though financial support from family members or
other sources, to be identified by the States and UTs, with the objective of providing a
basic level of financial support. The programme has undergone many changes in the
composition, eligibility criterion and funding patterns over the years.

2. Sub-Schemes under the Programme and Implementation

a. Indira Gandhi National Old Age Pension Scheme (IGNOAPS)

Under the scheme, assistance is provided to person of 60 years and above
and belonging to family living below poverty line as per the criteria
prescribed by Government of India. Central assistance of Rs.200/- per
month is provided to person in the age group of 60-79 years and Rs.500/- per
month to persons of 80 years and above.

b. Indira Gandhi National Widow Pension Scheme (IGNWPS)

Under the scheme, Central assistance @ Rs.300/- per month is provided to
widows in the age group of 40-79 years and belonging to family living below
poverty line as per the criteria prescribed by Government of India.

c. Indira Gandhi National Disability Pension Scheme (IGNDPS)

63

Under the scheme, Central assistance @ Rs.300 per month is provided to

persons agedl8-79 years with severe and multiple disabilities and belonging to
family living below poverty line as per the criteria prescribed by Government of
India.

d. National Family Benefit Scheme (NFBS)

Under the scheme, BPL household is entitled to a lumpsum amount of money on
the death of the primary breadwinner aged between 18-59 years. The
amount of assistance is Rs. 20,000/-.

e. Annapurna Scheme

Under the scheme, 10kg of food grains per month are provided free of cost to
those senior citizens who, though eligible under IGNOAPS, are not receiving old
age pension.

From the year 2014-15, NSAP has been converted into a Centrally
Sponsored Scheme (CSS) and funds are being released by the Ministry of Rural
Development to States /UTs scheme-wise in 06 monthly installments. In August
2016, the NSAP schemes is declared as "Core of the Core Scheme". NSAP is
being implemented mainly by Social Welfare Department in the States. In some
States, it is being implemented by Rural Development Departments and in a few
by Women and Child Development Departments.

3. Physical Performance in terms of goals set

Physical Progress during last three years and current year

The number of beneficiaries reported/covered under NSAP schemes during the
last three years is as under:-
(in lakh)
Scheme Ceiling/estimated 2016-17 2017-18 2018-19 2019-20
numbers for all
years
IGNOAPS 221 214 212.46 212.09 214.09
IGNWPS 65.73 57.30 58.46 58.12 59.35
IGNDPS 10.58 7.02 7.12 7.46 7.72
NFBS 3.58 3.58 3.58 3.58 3.58
Annapurna 8.31 2.64 2.64 2.64 8.3
64

4. Financial Performance

The NSAP is under Plan Expenditure (Revenue Expenditure), details of last

three years and current year as under:- (Rs. In Crore)

Year Allocation (BE) Allocation (RE) Actual Expenditure

2016-17 9500.00 9500.00 8851.14
2017-18 9500.00 8744.57 8696.16
2018-19 9975.00 8429.69 8418.47
2019-20 9200.00 9200.00 6240.85(as on
10.01.2020)

Financial Progress during last three years and current year

(Rs. in lakh)

Year IGNOAPS IGNWPS IGNDPS NFBS Annapurna Total

Allocat- Alloca- Allocat-
Allocation Release Allocation Release ion Release tion Release ion Release
2016-
590091.72 590091.72 203667.83 203667.83 26426.22 26426.22 62262.40 62262.40 888.04 888.04 883336.21
17
2017-
611043.27 611043.27 181696.86 181696.86 22136.27 22136.27 53039.61 53039.61 0.00 0.00 867916.00
18
2018-
577583.50 577583.50 173365.12 173365.12 28020.98 28020.98 60726.64 60726.64 1135.04 1135.04 840831.28
19
2019-
20
as on
625908.00 469965.15 193879.75 155688.04 29737.30 19898.62 62268.55 38209.21 6284.41 552.61 684313.63
date
(21.01.
2020)

4.2 Steps taken by DoRD to increase the transparency in the implementation of

the scheme have been submitted as below:-
NSAP-MIS: In order to increase the transparency and accountability in the
implementation of NSAP Schemes, data base of the beneficiaries under various
schemes of NSAP has been digitized. Further, an MIS namely, NSAP-PPS has
been developed to capture all the disbursement processes end to end including
identification, disbursement of pension, release of funds, verification, sanction of
pension, ground for refusal etc. The digitized data of beneficiaries is available on
NSAP-PPS. NSAP-PPS is completely integrated with PFMS for validating the
bank / postal accounts of the pensioners before generating the Fund Transfer
Order and pushing it electronically to PFMS on real time basis. As on date, out
of 272 lakh beneficiaries having bank/post office accounts, 230 lakh
beneficiaries have Aadhaar. The Aadhaar of 68 lakh beneficiaries is linked with
Bank/Post Office Accounts.
65

Direct Benefit Transfer (DBT): For accountability and transparency, NSAP

schemes are included in DBT for disbursement of pensions directly to
beneficiaries account. During 2018-19, 21.27 crore digital transactions were
reported by States/UTs. As NSAP beneficiaries belong to most vulnerable
section of the society, for people who cannot cover the distance physically, the
objective is to provide door step services as far as possible. However, the
preferred mode of payment is Bank Account or Post Office Savings Account.
State of Gujarat and UT of Lakshadweep are 100% DBT Compliant. In all other
States, except Andhra Pradesh, Odisha and Nagaland, mostly the system of
account based payment is being followed. Andhra Pradesh is following account
based system only in one district and cash-based system in all other districts.
The States of Odisha and Nagaland are following 100% cash based pension
payment system.

4.3 Addressing the concern of the Committee regarding the schemes of NSAP, the
Secretary, DoRD clarified as under:-
"आपने ओ ड एजपशन के बारे म कहा था। इस योजना को री चर करने का
ताव भारत सरकार के पास िवचाराधीन है। री च रंग दो-तीन ाउ ड् स पर हो रही है। एक
तो वही है, जो आपने कहा िक क म को यूिनवसलाइज कर द। दूसरा ाउ ड है िक इस क म
काजो पैसा है, उसको बढ़ाया जाए। तीसरा यह है िक इस क म म जो पैसा देने क ि या है
और रा य का जो अंश है, उसको री चर िकया जाए। इस पर अभी िवचार चल रहा है। एक
बड़ा मह वपणू सझ ु ाव यह आया था िक िविभ न योजनाओं के इं लीमटेशन म िवभाग के प म
हमको या किठनाई है, तािक हम आपको बताएं। यह एक हाई लेवल कमेटीहै। अगर आपक
रकमडेशंस सरकार के सं ान म आएंगी तो िफर वह काय करेगी। म आपको एक-एक उदाहरण
देदे ताहं। उसके बाद हम आपको अलग से िव तृत प म िलखकर दे दगे।"

F. SHYAMA PRASAD MUKHERJEE RURBAN MISSION (SPMRM)

1. Origin and Vision

The Shyama Prasad Mukherji Rurban Mission was launched by the
Honourable Prime Minister on February 21', 2016 with an outlay of Rs. 5142.08 crores.
This is a unique programme, designed to deliver catalytic interventions to rural
areas on the threshold of growth. 300 Rurban clusters with thematic economic growth
points, are being developed across the country under this Mission, with a funding
support of upto 30% of the estimated investment for each Rurban cluster, given as
Critical Gap Funding (CGF), while 70% of the funds is mobilized by the States through
66

convergence with synergic State and Central programmes as well as private

investment and institutional funding. Upon being re-classified as a Centrally
Sponsored Scheme, the CGF is now shared between the Centre and the State in a
ratio of 60:40 for Plain area States and 90:10 for Himalayan and NE States.

2. Achievement made so far - Physical & Financial

The Physical and Financial Progress is as under:-

Financial Progress:-
(Rs. in Crore)
Milestone 2016-17 2017-18 2018-19 2019-20
Rs. Rs. Rs. Rs.
Budget Estimated (BE)
300.00 1000.00 1200.00 800.00
Rs. Rs.
Revised Estimate (RE) Rs. 600.00 Rs. 451.03
600.00 300.00
Actual Expenditure against Rs. Rs.
Rs. 553.26 Rs. 432.59
RE 599.45 211.46

Physical Progress:-
(Figure in No)
Milestone Phase 1 Phase 2 Phase 3 Total
Cluster Identification and approval
100 100 96 296
Integrated Cluster Action Plans
100 95 93 288
(ICAPs)
DPRs 86 80 74 240

2.2. To a query of the Committee regarding the development pertaining to the

Shyama Prasad Mukherjee Rurban Mission (SPMRM) in respect of its aim to
complete 300 clusters by the end of the mission period, the Department in its
written reply have stated as below:-
"Out of 300 allocated Rurban clusters, 296 clusters have been
indentified, 288 Integrated Cluster Action Plans (ICAPs) have
been approved by Empowered Committee, MoRD and
subsequently, 240 Detailed Project Reports have been approved
by State Level Empowered Committee of respective
States/UTs. A total of Rs 28,075 crore of investment is proposed
in all the 288 ICAPs approved, out of which reported expenditure
upto end of December 2019 is Rs. 6,689 crore. This has an
67

amount of Rs. 1,070 crore under Critical Gap Funds (CGF) and
Rs. 5,619 Crore under Convergence."

2.3 Enquiring about the proposal as to the future of the scheme beyond March,
2020, it has been clarified by the DoRD in its submission as under:-
"Since Rurban Mission is an innovative program to transform
Rural clusters, and the program has a unique design requiring
integrated planning for the cluster area, implementation of various
projects are in progress. The Mission would require two(2) more
years to complete ongoing activities. Therefore Ministry has
sought Expenditure Finance Committee (EFC) approval for
extension of Mission upto 31st March 2022. Both Ministry and
NITI Aayog have vision to expand the Mission into a larger
program covering around 1000 more clusters under Rurban-2 in
future."
3. Issues under the Mission

The Committee wanted to know from DoRD the reason for the steep reduction
of funds at RE stage in 2019-20. Responding to this question, the DoRD have made
following submission:-
"Under Shyama Prasad Mukherji Rurban Mission(SPMRM), after
approval of Integrated Action Plan (ICAP) of the clusters by
Empowered Committee, MoRD, States/UTs started preparing
Detailed project reports of each project proposed in the ICAP.
The preparation of DPRs is a time taking process and State has to
mobilize DPRs from different line departments for different
projects. After consolidating DPRs from all line DPRs, the same
has to be approved by State Level Empowered Committee for
approval and based on approval of SLEC, works commencement
started on ground. Convening of State Level Empowered
Committee( SLEC) in the State level takes time as the same is to
be chaired by Chief Secretary of the concerned State/UT. Further,
Spatial Planning is one of the important features of the Mission.
Planning in Rural areas is a new concept and States took long
time to understand and then carry out Planning notifications and
do spacial planning for the clusters. Due to the above mentioned
issues, less number of proposals were received from the
States/UTs in FY 2019-2020. Hence, there is a reduction of fund
at RE stage. More wage-fund requirement under MGNREGA
resulted into Rs. 500 Cr reduction in RE from BE."
68

3.2 On further enquiring about the higher BE sought for 2020-21 to a tune of
Rs. 600 crore when RE of 2019-20 was reduced to Rs. 300 crore, the DoRD have
stated that:-

"As the Mission hinges on both Convergence and Critical Gap

Fund (CGF) component, the focus of the States initially has been
preparation and approval of Integrated Cluster Action Plans
(ICAPs) which outlined the requirements of the Clusters.
Subsequently, First Installment of CGF was released to the States
which enabled them to prepare Detailed Project Reports (DPRs)
and utilise the fund released. While the preparation of DPR is a
time taking process, States have meanwhile invested on the
convergence themes of the Clusters. With the active perusal of
the Ministry through regular handholding and conduct of
workshops, the mission has the picked up pace with the states
actively furnishing the DPRs and effectively increased the
utilisation of funds on CGF activities.
As the release of Second and Third installment of CGF
depends on fund utilisation on ground and preparation of Spatial
plans, the states/UTs have been consistent in speeding up of
activities undertaken which are being monitored through Monthly
Progress Reports and timely UC submissions.
Budget Estimate for the Financial Year 2020-21 has
increased due to expectation of high number of proposals for
release of second and third installment from the States/UTs."

G. SAANSAD ADARSH GRAM YOJANA (SAGY)

1. Visionary Approach

Saansad Adarsh Gram Yojana (SAGY) was launched by Hon’ble Prime Minister on
11th October, 2014 with the objective of creating model Gram Panchayats in different
parts of the country. Primarily, the goal was to develop three Adarsh Grams under
each Hon’ble MP by March 2019. Thereafter, five such Adarsh Grams (one per year
under each Hon’ble MP) will be selected and developed by 2024. Under the Saansad
Adarsh Gram Yojana framework, the development of Gram Panchayats has been
envisaged through the convergence and implementation of existing Government
Schemes and Programmes under the administrative control of respective Ministries
without allocating additional funds. The Gram Panchayats adopted under SAGY
through a participatory process under the guidance of Hon’ble Members of Parliament
prepared Village Development Plans (VDP) containing prioritised time-bound activities
to achieve holistic progress of the village.
69

Physical Progress, Phase-wise -

No. of SAGY No. of GPs that No. of projects No. of projects No. of projects in-
Sl Phase
GPs uploaded VDP planned completed progress

Phase-I
1
2014-16 703 689 41431 26776 3776
Phase-II
2
2016-19 500 421 20866 12593 1915
Phase-III
3
2016-19 290 222 8002 4309 919
Phase-IV
4
2019-24 265
1758 1332 70299 43678 6610

2. Progress so far

Physical Progress, Phase-wise -

No. of SAGY No. of GPs that No. of projects No. of projects No. of projects in-
Sl Phase
GPs uploaded VDP planned completed progress

Phase-I
1
2014-16 703 689 41431 26776 3776
Phase-II
2
2016-19 500 421 20866 12593 1915
Phase-III
3
2016-19 290 222 8002 4309 919
Phase-IV
4
2019-24 265
1758 1332 70299 43678 6610

Financial progress

Realisation of the programme objectives under Saansad Adarsh Gram Yojana (SAGY)
is intended through convergence and implementation of the existing Government
Schemes and Programmes, without allocation of additional funds.

Nonetheless, funds were allocated to NIRD&PR for meeting expenses incurred on

documentation, training, professional and technical support required in the
implementation of SAGY programme. In addition, funds were also allotted to the
State/UT headquarters for administrative expenses, and also @ Rs 50,000 per Gram
Panchayat for administrative expenses and preparatory activities at Gram-Panchayat
70

level. For these three purposes, B&A section of MoRD allocated Rs 6 Crore during
2014-19 and Rs 8 Crore during 2019-20 for SAGY under the ‘Management Support to
RD Programmes and Strengthening District Planning Process’ Scheme.

3. Steps taken by DoRD

The Committee were desirous to be acquainted with the steps taken by DoRD
to ensure the speedy implementation of various schemes in the villages adopted by
Hon'ble MP. In response, the DoRD have elaborated as under:-

“The Hon’ble Members of Parliament identified 1,493 Gram Panchayats for

development under Saansad Adarsh Gram Yojana (SAGY) during 2016-19.
Further 273 Gram Panchayats have been identified by the Hon’ble MPs during
2019-20 till 27 January 2020.
Under the SAGY framework, the development of Gram Panchayats is
envisaged through convergence and implementation of existing Government
Schemes and Programmes under the administrative control of respective
Ministries without allocating additional funds. The Gram Panchayats adopted
under SAGY prepare Village Development Plans (VDP) through a participatory
process under the guidance of Hon’ble Members of Parliament. The VDP
includes prioritised time-bound activities to achieve holistic progress of the
village.
So far, 1,354 Gram Panchayats have uploaded their Village Development
Plans (VDP) containing 71,033 projects on the SAGY website (saanjhi.gov.in).
Out of these, implementation of 44,231 activities has been completed as per the
information available on SAGY website (saanjhi.gov.in) as on 27 January 2020.
The following initiatives have been taken, inter alia, for better implementation
of the Scheme:
 An orientation programme on SAGY was organised for the newly elected
Hon’ble Members of Parliament on 3 December 2019 at Parliamentary
Research and Training Institute for Democracies (Erstwhile BPST),
Parliament House, New Delhi.

 The guidelines of as many as 22 Central Schemes have been amended

or enabled to accord priority for the SAGY Gram Panchayats. A
compilation of 223 Central Sector/ Centrally Sponsored and 1,806 State
Schemes for convergence under SAGY for the benefit of Members of
Parliament, District and Village level officials have been prepared.
Ministry has also published a document named ‘SAHYOG’ as an
indicative guidance document with the essential information on the
existing social security schemes collated from respective Ministries to
71

enrich the knowledge of villagers and village level functionaries to achieve

100% enrollment into the social/ financial Security Schemes in SAGY
Gram Panchayats.

 Recognising that the implementation of SAGY requires highly motivated

and knowledgeable personnel, the Ministry organised capacity building
exercises for State Team of Trainers, State Nodal Officers, Charge
Officers and other SAGY functionaries of SAGY-II (2019-24) Gram
Panchayats.

 SAGY is reviewed periodically by the Ministry of Rural Development. The

Ministry has evolved a comprehensive multilevel and multi-tool system of
monitoring and evaluation of the implementation of its programmes which
include review by the Hon’ble Minister of Rural Development,
Performance Review Committee, National Level Monitors, Concurrent
Monitoring and Impact Assessment studies. Concurrent monitoring
mechanisms include the progress updated by States/Districts through
SAGY website regarding the identification of the Gram Panchayats,
progress tracking of Village Development Plans (VDPs), monthly review
with States over video conference and regular field visits.”
VII. District Development Coordination and Monitoring Committee (DISHA)
District Development Coordination and Monitoring Committee known as ‘Disha’
has been formed by the Ministry in June, 2016 under the chairmanship of Member of
Parliament (Lok Sabha) with a view to fulfill the objective of ensuring better
coordination among all the elected representatives in Parliament, State Legislatures
and Local Governments in monitoring the progress of major projects aimed at socio-
economic transformation at the district level. With the dissolution of the sixteenth Lok
Sabha, the district level DISHA committees were dissolved and new committees have
been formed in 698 districts on the basis of the seventeenth Lok Sabha.

While asking for the details of the DISHA Committee meetings held so far, the
Committee also wanted to know about the measures taken by DoRD to ensure timely
meetings with the presentence of all accountable officers. Responding in its written
reply as below:-
“The details of the DISHA Committee meetings held so far State/UT-wise
till date is given in the table as under. In regard to matter of timely meetings
with the presence of all accountable officers, Ministry has been vigorously
pursuing with the State Governments and district administrations to convene at
72

least one meeting in a quarter as prescribed in DISHA Guidelines. The issue is

raised with State Governments from time to time including in Performance
Review Committee (PRC) meetings. Hon’ble MRD had written a letter No. Q-
13016/06/2016-VMC (Pt) dated 27th February, 2018 to Chief
Ministers/Administrators of States/UTs requested to instruct concerned officers
to ensure that the meetings of DISHA are held as per the Guidelines. In its
communication dated 24th January, 2019 addressed to Chief Secretaries of all
the States, Ministry of Rural Development has brought to their notice the
provision of Para 8 of District Level DISHA guidelines which provides that the
regularity of DISHA meetings and follow up on their decisions as a necessary
requirement for making releases to States under Central and Centrally
Sponsored Programmes. Furthermore, several IT initiatives including
deployment of State of Art DISHA Dashboard, DISHA Meeting Management
software to facilitate structured and effective discussions in the meetings and
institution of recognition system for better performing states have been taken. In
October, 2019, States were requested to designate a State Nodal Officer (SNO)
for DISHA initiative to timely conduct of meetings in Districts, ensure that
proceedings of meetings get submitted timely, resolve the issues highlighted
during the meetings and monitor the action items decided during the meetings.
It is anticipated that these interventions combined with consistent
persuasions will certainly help in sensitizing the District authorities to convene
DISHA Committee meetings regularly.”
District Development Coordination and Monitoring Committee (DISHA)
No. of District Level DISHA Meetings reported by States
Sl.No. State No. of DISHA Number of Meetings
District
2016-17 2017-18 2018-19 2019-20*
1 Andhra Pradesh 13 11 5 5 4
2 Arunachal Pradesh 25 16 8 9 5
3 Assam 27 41 33 28 14
4 Bihar 38 49 19 13 4
5 Chhandigarh 1 0 0 0 0
6 Chhattisgarh 27 70 73 41 16
7 Delhi 11 0 0 0 0
8 Goa 2 0 3 3 1
9 Gujarat 33 50 46 53 23
10 Haryana 21 40 38 23 14
11 Himachal Pradesh 12 17 13 6 3
12 Jammu & Kashmir 22 6 3 6 0
13 Jharkhand 24 44 50 32 8
14 Karnataka 30 51 50 53 20
15 Kerala 14 31 43 47 20
16 Madhya Pradesh 51 74 46 48 21
17 Maharashtra 36 55 53 24 2
73

18 Manipur 9 2 3 1
19 Meghalaya 7 8 13 2
20 Mizoram 8 15 23 14
21 Nagaland 11 1 3
22 Odisha 30 36 34 21 7
23 Punjab 22 10 21 16 2
24 Rajasthan 33 72 56 29 11
25 Sikkim 4 4 3 5
26 Telangana 31 16 18 10 2
27 Tamil Nadu 32 1 8 25 10
28 Tripura 8 10 6 5 4
29 Uttarakhand 13 22 35 30 7
30 Uttar Pradesh 74 94 112 104 45
31 West Bengal 20 6 3 3
32 Andaman & Nicobar 3 2 0 1 0
33 Daman & Diu 2 0 2
34 Dadra & Nagar Haveli 1 0 0 1 0
35 Lakshadweep 1 0 0 0 0
36 Puducherry 2 0 1 1 1
Total 698 854 819 664 244
* Data upto 27.01.2019

7.2 Elaborating further on the issue, the Secretary, DoRD, during the course of
evidence stated as under:-
"पहले भी जब ‘िदशा’ क समी ा हई थी, तब यह मामलाउठा था। हमने भारत सरकार क ओर
से बड़े िदशा-िनदश िदए ह िक िजलािधकारी को उस मीिटंग म मौजूद रहना हीरहना है,
िवभाग के िवभागा य को मौजूद रहना है, िजलािधकारीअगरमौजूद नह रहपातेतोजोउनके
सैके ड-इन-कमांडह, चाहे िबहार म वे सीडीओह याडीडीसी ह याआं देश या तेलंगाना म
सीओ, िजला प रषदह , उनको रहना है। हम एक बार पनु : रा य के चीफ से े ीज़ को भारत
सरकार क ओर से भेज दगे, यह कहते हए िक टिडंग कमेटी म यह मु ा उठा था और वे यह
सिु नि त कर िक इस कार के मामल क पनु रावृि न हो। अगर कोई एडिमिन ेिटव ए शन
लेना है तो वह रा य सरकार को ही लेना होगा। हम इस ओर भी उनका यान आकृ करगे।"
VIII. Impetus to the pace of progress
To a query of the Committee as to how the DoRD plans to provide acceleration
to the pace in the progress of various schemes, the Department have outlined its
measures as produced below:-
PMAY-G:-
For ensuring faster pace of completion, the following actions are being
taken by the division:-
74

a. Regular VCs with States / UTs at the level of Secretary / Special

Secretary/ Joint Secretary to review the progress and address the
issues including technical issues both from Delhi and by visiting the
States.

b. Assigning of States to DoRD officers for regular follow up with poor

performing States
c. Letter from Hon’ble MRD to Hon’ble Chief Ministers for review at their
level
d. Seeking the completion plan from States/UTs and ensuring regular
follow-up on the same
e. Follow-up with the States to provide land to landless beneficiaries of
PMAY-G
f. District-wise review in the States with larger targets
g. Visits to the States by Rural Housing teams to understand and address
issues at the ground level
h. Timely availability and release of funds to the States/UTs
i. State-wise analysis of delayed houses and regular follow-up
PMGSY:-
Rural Roads’ is a State subject and PMGSY is a one-time special intervention of
the Government to improve rural infrastructure through construction of roads. As
such, the responsibility of timely completion of these roads lies with the State
Governments. State Governments are advised through various Regional Review
meetings, Empowered Committee and Review meetings to take suitable necessary
action to expedite timely completion of road works under PMGSY. The following
steps in this regard have been taken by the Ministry:

a. States have been requested to augment executing capacity and contracting

capacity.
b. Bidding document provisions have been rationalized.
c. Training is imparted to field engineers and contractors and their engineers
for capacity building.
d. Regular and structured review of physical & financial parameters is
conducted and advisories issued to assist the States.
NRLM:-
“The progress of scheme is overall satisfactory. However, the following measures
have been adopted under DAY-NRLM to monitor and appraise the progress of
activities undertaken by the State Missions-
a) Performance review using MIS data: The performance of the State Missions
is regularly reviewed through a Video Conference & review meetings chaired by
the Joint Secretary.
b) Performance Review Committee (PRC) Meeting: During the PRC meetings,
all states are reviewed on their overall performance. The PRC meeting is chaired
by the Secretary, RD.
c) Common Review Mission: Common Review Missions are held annually in
which a team of higher officials chosen at the national level visits the states and
75

reviews the progress of implementations at the state level.

d) Training and workshops: DAY-NRLM conducts thematic trainings and
workshops for the State Missions on regular intervals. This keeps the State
Missions abreast with the schemes and the expected outputs.

Based on the inputs received from CRM, input & guidance provided to the
states during discussions in Performance Review Committee (PRCs), regular
reviews and workshops, States are able to meet their objectives/ targets.”
NSAP:-
The progress of the Scheme is continuously monitored by the Ministry of Rural
Development through Monthly Progress Reports required to be submitted by the
states/UTs in the prescribed formats. Non-reporting of the physical and financial
progress reports is construed as lack of progress and therefore, it may result in
non-release of funds for the last quarter of the financial year. The performance of
the programme is reviewed with Secretaries twice a year during the Performance
Review Committee (PRC) meetings of the Ministry and States where progress lag
behind are advised to improve their performance. Video conferences and meetings
with States are also organized to review the progress.
RURBAN:-
For the proper monitoring of the Mission, the following steps are being taken:-

i. Regular field visit by the National Mission Management Unit (NMMU)

ii. Regular Video Conference with the States/UTs to expedite the progress of
the Mission
iii. Regular Monthly DO letters to all the States/UTs
iv. Workshops/Seminars
v. Change in DPR approval and fund release pattern

This has resulted in improvement in the progress of the scheme as 145

Detailed Project Reports(DPRs) have been approved by the State Level
Empowered Committee(SLEC) in this Financial Year only. Further, action has been
taken based on the feedback of States and UTs to simplify the fund release
procedure making it more objective and transparent. .This will help in expediting
pace of expenditure of the Mission.

SIRD/ETC (MSRDP):-
As REAT module of PFMS have been introduced in the year 2018-19 in full-
fledged manner, funds flow to the Institutes were slow therefore progress of
training programme have been hampered. To streamline funds flow, hand holding
sessions were organized with the Institutes which received positive results.
76

PART-II

OBSERVATIONS/RECOMMENDATIONS OF THE COMMITTEE

Ministry of Rural Development tabled its detailed Demands for Grants

(2020-21) in the Lok Sabha vide Demand No. 85 on 10.02.2020 wherein

Rs. 1,20,147.19 crore was allocated to the Department of Rural Development by

the Government. As per the extant provision, the demands have to be examined

`by the Departmentally Related Standing Committees and Reports are to be

presented to the Parliament. The Standing Committee on Rural Development

have examined the Demands for Grants of the Department of Rural Development

in light of the funds allocated to the Department for the financial year 2019-20.

The performance of the schemes under the purview of the Department has been

thoroughly analyzed on the parameters of utilization of funds and the

achievements of target set for that period. Based on its findings, the Committee

have made observations/recommendations which are enumerated in the

successive paragraphs:

Impetus to the pace of progress of the Schemes

Department of Rural Development implements flagship schemes which

are aimed at nourishing the root of development of the rural populace. Schemes

such as Mahatma Gandhi National Rural Employment Guarantee Act

(MGNREGA), Pradhan Mantri Awaas Yojana - Gramin (PMAY-G), Pradhan Mantri

Gram Sadak Yojana (PMGSY), Deendayal Antyodaya Yojana - National Rural

Livelihood Mission DAY-NRLM etc. champion the cause of poor and

downtrodden class of rural India and are in true sense, the harbingers of hope

for the needy and deprived sections of the society. The Committee strongly feel
77

that the progress of the nation is directly proportional to the progress of rural

masses. With this sentiment in mind, while examining the performance of

various schemes such as Pradhan Mantri Awaas Yojana - Gramin (PMAY-G),

Pradhan Mantri Gram Sadak Yojana (PMGSY), Shyama Prasad Mukherjee

Rurban Mission (SPMRM), the Committee observe the slow pace of progress in

such schemes which needs immediate attention and action. In wake of such

situation, the Committee firmly urge upon the Department of Rural Development

(DoRD) to take efficacious steps to yield desired results in the remaining period

of financial year 2019-20.

(Recommendation Sl. No. 1)

Increased Allocation of Funds

The examination of Demands for Grants (2020-21) brought to the fore a

glaring fact that against the projected demand of Rs. 1,63,630.11 crore, the

DoRD has been allocated Rs. 1,20,147.19 crore at BE stage which is only 2.12%

hike over the BE of 2019-20. Under MGNREGA, against the average annual

demand of Rs. 88,000 crore, only Rs. 61,500 crore have been allocated at BE

stage, which is also less than the annual demand. Having taken into account

this perplexing situation wherein on the one hand it can be seen that the

timeline for various major programmes of the DoRD which are nearing its

completion are shifting to next phase, on the other hand, prima facie, it appears

to the Committee that the dearth of funds might be an impediment to the

progress / achievement of the envisaged schemes. The Committee, therefore,

strongly recommend DoRD to pursue the matter at the highest level with the

Ministry of Finance in order to seek increased allocation of funds for efficacious

78

implementation of various schemes envisaged by the Government for

betterment and welfare of the people living in rural areas.

(Recommendation Sl. No. 2)

Unspent Balances-Expeditious liquidation of unspent balances across the

schemes
The Committee are deeply concerned to find an amount to the tune of

Rs. 25,158.63 crore as unspent balance on 31st January, 2020 across various

schemes of DoRD which is unacceptable. Accrual of such huge amount reflects

that either there has been a faulty planning or execution of schemes envisaged

by the Government, which needs to be streamlined prudently to avoid left-out

balance in future. The Committee do understand that funding pattern comprises

Centre and State share and other modalities of release of Centre share still

disapprove the disconcerting situation which led to lying of huge unspent

amount. Thus, the Committee urge the DoRD to spruce up it's machinery to

prepare realistic planning in the light of the proposed allocation for the different

schemes envisaged / approved by the Government and implement them with full

zeal so that amount available can be utilized fully. The Committee may be

informed about the mechanism developed by the DoRD in this regard.

(Recommendation Sl. No. 3)

Mahatma Gandhi National Rural Employment Guarantee Act (MGNREGA)

Scope of new works to be taken under MGNREGA

The Committee note that Mahatma Gandhi National Rural Employment

Guarantee Act (MGNREGA) is a demand driven scheme which creates wage

employment opportunities through creation of durable assets aimed at

79

promoting livelihoods of the rural people on sustained basis. The Committee

have taken into consideration the approach of the DoRD to ensure that at least

60% expenditure is done on water conservation works yearly under the Natural

Resource Management. On the similar lines it has been observed by the

Committee that the ambit of work that can be taken up under MGNREGA should

be amply widened so that works like fencing around the cropland to protect it

from wild animals, construction of check dam and protection wall to prevent

land erosion, erection of barbed wire around agricultural fields etc. may also be

taken up as per the requirement of the specific areas. Thus, the Committee

recommend DoRD to review the list of works that can be taken up under

MGNREGA and modify it suitably by incorporating new works as per

requirement.

(Recommendation Sl. No. 4)

Adherence to the timeline in the payment of wages

One of the noble foundation upon which stands the objective and vision

of MGNREGA is to provide wage security, i.e. providing not less than one

hundred days of guaranteed wage employment in a financial year to every

household whose adult members volunteer to do unskilled manual work.

However, the entire purpose stands defeated if timely payment of wages is not

made to the rural masses involved in MGNREGA works. The Committee have

been apprised on umpteen occasion about the malaise and depravation that has

crept in the implementation of MNGREGA concerning with the delay in the

payment of wages owing to plethora of reasons such as delay in muster roll

creation etc. It is unfortunate and totally unacceptable that rural poor performing
80

unskilled manual works are not paid their dues timely. The Committee view this

very seriously and strongly recommend the DoRD to take proactive measures in

order to curb and rectify the delay in the payment of wages so that purpose of

MGNREGA can be achieved as conceived by the Government.

(Recommendation Sl. No. 5)

Increase in the wage rates of Mahatma Gandhi National Rural Employment

Guarantee Act (MGNREGA)

Mahatma Gandhi National Rural Employment Guarantee Act (MGNREGA)

entails the usage of primarily unskilled labourers for such nature of jobs under

its ambit which more often than not involve physical endurance and strength.

Performing such works for wages which are even less than the minimum wages

guaranteed under the States' Minimum Wages Provision is an ungainly affair.

The Committee have noted the existing disparity in wages in various states of

the country wherein the labourers are underpaid in comparison to the higher

wages under the States' wages. Moreover, even the agricultural labourers

receive more amount than the MGNREGA workers. The Committee feel that may

be a reason for the labourers to get discouraged in enrolling themselves under

MGNREGA and migrating to different nature of work or to cities for demand of

work. The situation needs to be dealt with by bringing not only parity in wages

but also increasing the minimum wages under MGNREGA periodically after

taking into account the inflationary behaviour of the market. The Committee,

therefore, implore upon the DoRD to resolve the issue of disparity of wages and

also increase the wages under MGNREGA commensurately with inflation.

(Recommendation Sl. No. 6)

81

Poor implementation of the provision of unemployment allowance under

Mahatma Gandhi National Rural Employment Guarantee Act (MGNREGA)

While scrutinizing the performance of the scheme in wake of the demands

for grants (2020-21), the Committee are concerned about the non-adherence to

the provision of payment of unemployment allowance. The facts presented

before the Committee revealed that only few States to the tune of only Rs. 12,000

cumulatively have paid unemployment allowance to those who could not be

provided job under MGNREGA within the stipulated time frame. This reflects

doubts that all job seekers have been given jobs within the time period. This is,

however, not the case at all as the Committee feel that on the ground level

inordinate delay in providing jobs under MGNREGA at many places have

become an acceptable norm. The Committee are given to understand that as

per the provision of MGNREGA, providing unemployment allowance is the

responsibility of States, however, the Committee are still of the opinion that the

Department cannot absolve itself of the responsibility of non-adherence to this

provision by the States. Hence, the Committee recommend DoRD to devise

measures in order to see a full fledged implementation of the provision of

payment of unemployment allowance under MGNREGA.

(Recommendation Sl. No. 7)

Opening of Postal Accounts for receiving payment under MGNREGA

The Committee note with concern the issue of rural inhabitants from far-

flung isolated locations requiring to travel long distances sometimes upto

15-20 kilometers to reach the branch of Nationalised banks for receiving

payment under MGNREGA. After going into the merits of the existing situation
82

and exploring viable alternative, the Committee are of the opinion that post

offices in each villages can also be utilized for this purpose.

The Committee feel that the DoRD should suitably amend its operational

protocol regarding the payment to labourers and the feasibility of opening

accounts in post offices might be looked into pragmatically. Therefore, the

Committee call upon the Department to look into this aspect in a practical and

realistic manner to come up with a beneficial solution.

(Recommendation Sl. No. 8)

Pradhan Mantri Awaas Yojana - Gramin (PMAY-G)

Delay in completion of Houses
The Committee are of the firm view that 'Housing for All' by 2022 is indeed

a praiseworthy initiative which aims to tackle one of the pertinent obstacle in the

development of the country, i.e. homelessness. The Committee are concerned

to note that as per the data provided by the DoRD, as against the target of

51,07,396 number of houses to be constructed under PMAY-G during the year

2019-20, only 12.14% of the target till 28.01.2020, have been completed. This is

an abysmally low figure leaving the Committee deeply concerned. The

Committee in view of the worthiness of the scheme beseech upon the DoRD to

go into detail about the causes of sluggish progress of the PMAY-G and take

corrective measures in this regard so that benefits of the scheme would reach to

the targeted rural population in a true spirit.

(Recommendation Sl. No. 9)

83

Non-timely release of installments

Through its assessment of ground reality and the experience of Members

in their constituencies, the Committee have taken into cognizance a glaring

loophole thwarting the timely completion of houses, is the issue associated with

the delay in the release of installments under PMAY-G to the beneficiaries. The

Committee note that for various administrative reasons, non-release of funds in

consonance with the progress of construction coupled with non-adherence to

the timeline for house construction have led to delay in final completion of the

houses. The Committee feel that all parties involved right from Centre to State

machinery needs to be brought on same platform. Thus, the Committee

recommend the DoRD to streamline its modalities vis-a-vis timely release of

installments for house construction and explore all ways and means to ensure

that construction of houses is completed within the time frame.

(Recommendation Sl. No. 10)

Upgradation of permanent wait list of Pradhan Mantri Awaas Yojana - Gramin

(PMAY-G)

The timeline for the achievement of desired goal of PMAY-G is

approaching day by day. However, the Committee have been apprised that the

issue of inclusion of left-over beneficiaries from the universe of PMAY-G is still

not resolved. The Committee were, however, informed that DoRD have

developed a separate mobile application (Awaas+) for compilation of data in

respect of left-over beneficiaries and a report is expected soon. Taking note of

the development, the Committee are of the view that it is high time that the

DoRD should expedite the pace and ensure the earliest resolution of this issue
84

so that the permanent wait list of PMAY-G is suitably modified to the extent that

the eligible left-over beneficiaries are included without any further delay. The

Committee, therefore, urge DoRD to expedite its process regarding the

compilation of data of left-over beneficiaries on top priority to ensure that the

needy ones are not left behind.

(Recommendation Sl. No. 11)

Ensuring quality of construction under Pradhan Mantri Awaas Yojana (PMAY-G)

The Committee during its deliberations came to know that region-specific

house design typologies have been developed, keeping in account local geo-

climatic and cultural considerations. It was also brought to the notice of the

Committee that Rural Mason Training Program has been launched by the

Department to ensure construction of quality houses. These are commendable

steps taken by DoRD which need to be sustained and carried forward so that

these measures result in better quality of houses constructed under PMAY-G. It

is of utmost importance that the houses built under PMAY-G are of sustainable

quality with sound technical design and construction material. The Committee,

therefore, recommend DoRD to keep on persevering with their approach

regarding construction of houses using region-specific house design typologies

and increasing the numbers of trained rural masons.

(Recommendation Sl. No. 12)

Increasing Unit Assistance under Pradhan Mantri Awaas Yojana (PMAY-G)

The Committee note that at present, the unit assistance under PMAY-G for

plain areas is Rs. 1,20,000/- and Rs. 1,30,000/- in hilly States/difficult areas/IAP
85

districts respectively with a provision for toilets at Rs. 12,000/-. The Committee

do not find any palatable reason for keeping the per unit assistance in rural

areas at the above-mentioned level while for urban areas, the per unit assistance

is much higher, to the tune of about Rs. 2,50,000/-. The Committee feel that the

disparity seems to be irrational considering the difficulties faced logistically in

the rural areas in constructing a house. Various impediments, unknown in the

urban areas come to fore during the house construction in a village, but

inexplicably, such parameters were not taken into consideration while deciding

upon the amount of unit assistance in rural and urban areas. Therefore, the

situation merits a re-look and thus, the Committee strongly recommend DoRD to

increase the per unit assistance under PMAY-G in such a way to bring parity

between the unit assistance in rural and urban areas.

(Recommendation Sl. No. 13)

Pradhan Mantri Gram Sadak Yojana (PMGSY)
Slow pace of work under Pradhan Mantri Gram Sadak Yojana (PMGSY)

Under PMGSY, the DoRD is gearing up to start the PMGSY-III while the

datas concerning PMGSY-I and PMGSY-II reflect that still much more is required

to be done to complete the target under those phases. During the current

financial year also, till 28.01.2020, only 14,126 km in length has been completed

while only 1,675 habitations have been connected so far. The Committee note

that delay in the approval of Detailed Project Reports (DPRs) is the root cause

for delay in the construction of roads. At several places, the construction work

have not yet been started. PMGSY is a flagship programme of the DoRD and

requires to be taken up in a much more effective manner. The need of the hour
86

is to gear up the machinery and increase the pace of construction of roads

under PMGSY. The Committee, therefore, strongly recommend the DoRD to

ensure timely preparation/approval of DPRs, expeditious completion of

unconstructed roads and completion of target in a time-bound manner.

(Recommendation Sl. No. 14)

Road construction in accordance with local condition

One of the essential components of PMGSY is to construct all weather

durability roads which are sturdier and resistant to wear and tear. Although

construction of roads are sanctioned in many areas, but the contractors tend to

take up such projects which are more rewarding and less challenging in nature.

Many locations still remain unattended due to such callous approach of the

contractors and bidding agencies. The construction of road undoubtedly

requires a scientific approach as per the geo-climatic condition of the terrain

which ought to be reflected in the DPR. The Committee while deliberating the

above issue observe that some of the projects lying without start of

construction due to different nature of soils or other climatic conditions which

warrant efficient and scientific approach to tackle. The Committee, therefore,

urge DoRD to take notice of this fact and ensure a timely survey to bring forward

such projects also for the expeditious completion of all the projects under

PMGSY.

(Recommendation Sl. No. 15)

87

Tender issues and poor maintenance

A rampant practice that was brought before the Committee during

evidence was the filing of less quotation deliberately by the contractors to

achieve the tender for the construction of roads under PMGSY in the bidding

process. The initial low quotation by 20-30% or more, to win over the bid has a

long term ramification over the quality of construction of the roads under

PMGSY. Such practices need to be dealt with strongly by invoking

penal/statutory measures. The Committee are of the view that done with a

malafide intention of grabbing contract by quoting much less and then

compromising upon the quality of raw materials and construction logistics for

profit making is a criminal act. Due to such prevalent practices, the roads built

under PMGSY at many places show wear and tear by the end of first season

only. The Committee are of the strong opinion that in order to break the nexus

between erring officials and the contractors, DoRD may also explore the

possibility to fix a minimum tender amount to avoid unfair practices being

followed by unscrupulous contractors. The Committee feel that by taking such

corrective measures / strategies, contractors will not be able to carry on with

such practices in future and roads constructed would be good in quality for a

longer period of time.

(Recommendation Sl. No. 16)