Costing and BuDgeT - Resource Centre | Save the Children's · ©2014 save the Children Costing and Budget Analysis of sarva shiksha Abhiyan (ssA), integrated Child development services

Costing and

ANAlySiSBuDgeT

NATioNAl FlAgShiP ProgrAmmeS For ChilDreN

Union of India and the States of Bihar and Rajasthan (2012-13 to 2014-15)

Costing and

AnAlysisBudgetnAtionAl FlAgship progrAmmes For Children

Costing AndBudget AnALYsis

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Acknowledgments:

This report is partly financed by Save the Children, Norway and the Swedish International Development Cooperation Agency. The financers do not necessarily share the views expressed in this study. responsibility for the content is solely the author’s.

Credit (s) Concept: shireen Vakil miller Project Management: Abhijeet nirmal Inputs: Bipin Kumar dr. ishaprasad Bhagwat, dr. laxikant palo, mohammad Aftab, prabhat Kumar, rafay hussain, ramakant satpathy, dr. sanjeev rai, sreedhar mether, Inputs on Design: Vinay Kaushik Design by: purple Communication Author: Ajay Kumar sinha and dolon Bhattacharya

©2014 save the Children Costing and Budget Analysis of sarva shiksha Abhiyan (ssA), integrated Child development services (iCds) scheme and integrated Child protection scheme (iCps) union of india, and the states of Bihar and rajasthan (2012-13 to 2014-15)

this publication is protected by copyright. it may be reproduced by any method without fee or prior permission for teaching purposes, but not for resale. For use in any other circumstances, prior written permission must be obtained from the publisher.

PREFACEChildren constitute 39% of the total population in india, yet only 4.52 percent of the total union budget is spent on them. Children in india stand as a silent rebuke to the nation: millions of them around the country who are malnourished, out-of-school, or abused and exploited for different purposes. despite this, at the time of planning and budgeting by the government children, the future of the country; often referred to as our “demographic dividend “wait at the end of the line for their share. now, as the society and economy is changing, crisis is deepening for children, especially those who are dependent on government services and welfare programmes. their vulnerability is increasing by the day.

This study analyses the budgets of three National flagship programmes for children – (a) Sarva shiksha Abhiyan, (elementary education), (b) integrated Child development services (iCds) scheme and (c) integrated Child protection scheme.

the study examines their implementation in the states of Bihar and rajasthan and offers component-wise estimation on the budget required for their implementation. the study also analyses the allocation and expenditure for these programmes and makes suggestions for filling the gaps, and more efficient and effective implementation of these programmes.

the present programme approaches for child development, education, nutrition, health and protection is to increase the reach, however it needs a significant shift towards equality, quality and sustainability along with reaching the poorest and most vulnerable children. For this a much greater investment in children is required, in health; nutrition; education and protection, i.e , protecting them from violence and exploitation.

Children must be given greater attention and priority in planning and budgeting. india has the strength of being the youngest nation around the world, and if we want to reap the demographic dividend, and protect critical human capital in india, then this is the time to invest for the development of nation by investing in children’s development, health, protection and education. investments made on health and education of children, will save much spending later and will yield high returns in the form of thriving children, healthier families, and more educated and productive citizens, and thus a healthier and more productive nation. The human and financial costs of further neglect will be too high, and run the risk of turning india’s demographic dividend into a demographic liability.

shireen Vakil miller directory - Advocacy, Campaign and Communication save the Children

thomas Chandy Chief Executive Officer

save the Children


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Budget allocation and expenditure on a programme and scheme by any government showcases its commitment. the allocation for children’s programmes shows the investment in children for a better present and improved prospect of the nation’s future. in this study, the three most important national flagship programmes viz. (a) ICDS, (b) ICPS, and (c) SSA have been studied in detail and the actual cost requirements have been calculated from the first principle, i.e. cost requirement of a component of a programme. The finding is based on the unit cost and the number of units required in the whole State (in this study for Bihar and rajasthan).

in all the exercises of budget analysis, the emphasis was mainly on ascertaining the allocation and expenditure for children and the analysis was done to show the increase or decrease in allocation and expenditure. there have been very few attempts so far to analyse the government budgets from the first principle, i.e. to ascertain the financial requirements to implement a particular programme/scheme and base the demand for allocation and expenditure on factual financial requirements rather than any percentage increase over the last year or a percentage share in the total budget of the Country or the state or a percentage share in the gdp of the Country or the state.

For ssA, the total requirement of fund in Bihar as a whole amounts to rs. 20,699.10 crore per annum against which only Rs. 5,645.97 crore has been allocated in financial year (FY) 2013–2014 leaving a gap of rs. 15,053.53 crore. in rajasthan, the requirement of funds under ssA is calculated as rs.7,191.10 crore against which the actual allocation has been Rs. 3,216.64 crore in FY 2013–2014 leaving a deficit of rs. 3974.47 crore.

For iCds, taking into account all the component/interventions in Bihar, to cover all the existing physical gaps as well as the beneficiaries under universalization of ICDS, the total fund requirements in FY 2014–2015 is calculated to be rs. 4,032.13 crore against which rs. 2,253.45 crore has been actually allocated, leaving a gap of rs. 1,778.68 crore. in rajasthan, for Fy 2014–2015, the requirement for iCds was rs. 2,295.24 crore against which only Rs. 1,725.68 crore is allocated, leaving a deficit of Rs. 569.56 crore.

in the case of iCps, the total fund requirement, taking up all the components under iCps in Bihar, as per the revised cost norms, is rs. 5309.43 lakh whereas the actual allocation was only rs. 4050 lakh in FY 2014–2015 thereby leaving a deficit of Rs. 1259.43 lakh. Similarly, fund required for all the components under iCps in rajasthan, as per the revised unit cost of goi, is rs. 9912.66 lakh whereas the actual allocation was rs. 3714.16 lakh in Fy 2014–15 thereby leaving a shortfall of rs. 6198.50 lakh.

this study will be a good tool for advocacy with the policy makers and the decision makers at the implementation level in the states. this study will also be helpful for implementers and activists to understand the real need and make accurate and appropriate demands from their elected governments in a more informed manner.

prof. s. parasuraman director, tata institute of social sciences india

FoREwoRd

ACknowlEdgEmEntsThis costing and budget analysis of the three national flagship programmes (Sarva Shiksha Abhiyan, integrated Child development services and integrated Child protection scheme) for children has been carried out for save the Children, india as part of the organisation’s policy work on child rights. the authors are grateful to save the Children, and its partners as well all the participant respondents in the field level discussions at schools, anganwadi centres, institutions for children in difficult circumstances for the sharing of programmatic experiences on the three schemes, without whom this study would not have been possible. the authors are especially grateful to the state level and district level government officials of the schemes who not only gave the data and information but also shared their experiences and insights on the functioning of the schemes.

the authors owe a great debt to Abhijeet nirmal, ramakanta satapathy and saifur rahman of save the Children for facilitating the field study in Bihar and Rajasthan. A note of special thanks to Abhijeet nirmal for engaging in the conduct of the study at all stages, from methodology formulation to analysis and writing.

the authors are also grateful to Amit Kumar of Kisan Vikas trust in Khagaria and patna, Bihar; mukhtarul haq of Bachpan Bachao Andolan in patna, Bihar; prof. nil ratan of A. n. sinha institute in patna, Bihar; Anil Bharadwaj of CeACoedeCon in tonk, rajasthan; preetesh tiwari of sssr in tonk, rajasthan; Kaptan singh solanki of Bodh shiksha samiti in Alwar, rajasthan; and dr. Varsha Joshi and her team at institute for development studies, Jaipur, rajasthan; for participating in and enabling the data collection in the states of Bihar and rajasthan.

the authors are also grateful to their team members at FlAir (Forum for learning and Action with innovation and rigour) somnath Chakraborty, Brundaban sahoo and shadab haider without whom the onerous task of collecting data from the government offices would have been next to impossible.

The analysis, findings and recommendations in this study report are those of the authors and responsibility of any error is that of the authors.


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CONTENTS

Book I

Introduction, Methodology and Key Findings ......... 11-40

Book II

Sarva Shiksha Abhiyan (SSA)

in alignment with the RTE Act, 2009 ....................... 41-86

Book III

Integrated Child Development Services

(ICDS) Scheme ........................................................ 87-127

Book IV

Integrated Child Protection Scheme

(ICPS) ...................................................................... 127-174


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ACrONymSACA: Adoption Coordinating Agency

ACdpo: Additional Child Development Project Officer

Ae: Actual expenditure

Anms: Auxiliary nurse midwives

AWC: Anganwadi Centre

AWh: Anganwadi helper

AWp&B: Annual Work plan & Budget

AWW: Anganwadi Worker

Be: Budget estimates

BrC: Block resource Centre

BrgF: Backward regions grant Fund

CAB: City level Advisory Board

CAl: Computer Aided learning

Cdpo: Child Development Project Officer

CiF: Childline india Foundation

CnCp: Children in need of Care and protection

CrC: Cluster resource Centre

CWC: Child Welfare Committee

CWsn: Children with special needs

dAB: district level Advisory Board

dCpu: district Child protection unit

ddo: Drawing & Disbursing Officer

dpo: district Project Officer

dto: District Treasury Officer

eCCe: early Childhood Care and education

Fy: Financial year

gdp: gross domestic product

hB district: high Burdened districts

iCds: integrated Child development scheme

iCps: integrated Child protection scheme

ieC: information education & Communication

imr: infant mortality rate

JCl: Juvenile in conflict with law

JJB: Juvenile Justice Board

mdg: millennium development goal

mdm: mid day meal

mgnregA: mahatama gandhi national rural employment guarantee Act

mhrd: ministry of human resource development

mis: management information system

mmr: maternal mortality rate

mous: memorandum of understanding

msdp:

nA: not Available

ne: north eastern

nFhs: national Family health survey

ngo: non-government organization

nuepA: national university of educational planning and Administration

oosC: out of school Children

p&l mother: pregnant & lactating mother

pAB: project Approval Board

ps: primary school

pse: pre-school education

re: revised estimates

rems: research, evaluation, monitoring and supervision

rsCpC: rajasthan state Children protection society

rte Act: right of children to Free and Compulsory education Act

sAA: state Adoption Agency

sArA: state Adoption resource Agency

sCps: state Child protection society

sCs, sts, Bpl: schedule Caste, schedule tribe, Below poverty line

sJpu: special Juvenile police unit

snp: supplementary nutrition programme

spsu: state project support unit

srs: sample registration system

ssA: sarva siksha Abhiyan

tle: teaching learning equipment

tlm: teaching learning material

ups: upper-primary school

WCd: Women and Child development

sarva shiksha Abhiyan, integrated Child development services scheme and integrated Child protection scheme

introduction, methodology and Key Findings

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INTrOduCTION, mEThOdOlOgy ANd KEy FINdINgSBooK 1

Union of india and the StateS of Bihar and rajaSthan (2012-13 to 2014-15)


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1. InTRoDuCTIon .......................................................... 15

1.1 need for the study .....................................................................................15

2. METhoDology: ASCERTAInIng ThE FInAnCIAl REquIREMEnT............................................................... 17

2.1 data source ..................................................................................................20

2.2 Challenges and limitations ........................................................................21

3. KEy FInDIngS .............................................................. 22

3.1 sarva shiksha Abhiyan (ssA) .....................................................................22

3.1.1 physical status and planning – ssA ....................................................................22

3.1.2 gap between Fund requirement and Actual Allocations for ssA .............23

3.1.3 unit cost analysis of selected units under ssA – Field study report .........25

3.1.4 under expenditure in sarva shiksha Abhiyan (ssA) ......................................26

3.2 integrated Child development services (iCds) scheme ...................27

3.2.1 physical status and planning – ...........................................................................27

3.2.2 gap between Fund requirement and Actual Allocations for iCds ..........28

3.2.3 unit cost analysis of selected units under iCds – Field study report ......32

3.2.3.a supplementary nutrition programme ....................................................32

3.2.3.b pre-school education .................................................................................32

3.2.4 under expenditure – iCds .................................................................................33

3.3 integrated Child protection scheme (iCps) ........................................34

3.3.1 physical status and planning – iCps .................................................................34

3.3.2 gap between Fund requirement and Actual Allocations for iCps ...........34

3.3.3 unit cost analysis of selected units under iCps – Field study report .......38

3.3.4 under expenditure - iCps .................................................................................39

CONTENTS

table:

table 2.1: data Collection and Field Work .................................................................................19

table 2.2: sources of data...............................................................................................................20

table 3.1: Fund requirement vs. Actual Allocation in Bihar & rajasthan ...............................23

table 3.2: Fund requirement vs. actual allocation in Bihar, component-wise .......................29

table 3.3: Fund requirement vs. actual allocation in rajasthan, component-wise, Fy 2012-13 .......................................................................................31

table 3.4: total fund requirements and actual allocation

on different components of iCps, state wise .............................................................................37

Figure:

Figure 3.1: percentage unspent in ssA in Bihar, 2013-14 ........................................................26

Figure 3.2: percentage unspent in ssA in rajasthan, 2013-14 ................................................26

Figure 3.3: Fund requirement and Actual Allocations in Bihar ..............................................29

Figure 3.4: Fund requirement and Actual Allocations in rajasthan .......................................31

Figure 3.5: percentage of Allocated Funds kept unspent in iCds in Bihar ...........................33

Figure 3.6: percentage of Allocated Fund kept unspent in iCds in rajasthan .....................33

Figure 3.7: Fund requirement vs. allocation for iCps in Bihar, Fy 2013-14 ..........................36

Figure 3.8: Fund requirement vs. allocation for iCps in rajasthan, Fy 2013-14 ..................36

Figure 3.9: percentage of allocated fund kept unspent for iCps in Bihar ............................39

Figure 3.10: percentage of allocated fund kept unspent for iCps in rajasthan ..................39



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1. INTrOduCTION Children below the age of 18 years account for more than 40 per cent of india’s population. performance on development indicators show that a lot of ground still needs to be covered by india towards securing the welfare of the children and delivering their basic rights.

investing in such a large young population is fundamental to the acceleration and sustainability of india’s growth and human development. however, despite india being one of the world’s largest economies, investments in social welfare and development are insufficient and are also not yielding changes rapidly enough.

in a country like india where even though the governments’ budget is approximately only one-fifth of the country’s GDP, it is very important from the point of view of social welfare and development. unfortunately, government budgets while prioritizing its economic policies and objectives, bypass the actual need of the social sector and especially those of children. therefore to seek appropriate funding it is important to understand the actual financial requirements for implementation of the schemes.

1.1 Need for the Study

What financial resources are required to implement child-specific schemes in a manner that they achieve their objectives? Answer to this question has to be the basis of any budget advocacy for children rights. We observe the lacunae in implementation and results of the programmes for children and have a hazy understanding that amongst many reasons for non-delivery, an important reason is also inadequate funds availability. But, we are not able to arrive at a logical figure of what financial resources are actually required. then there is another side of analyzing how much is spent

on what and what have been the trends in allocation and expenditure.

realising the need for an analysis of the government budgets for various sectors of child rights and for understanding the pattern to monitor government’s allocation and expenditure for children, a research tool was developed which we know as Child Budget Analysis. it is a tool to assess how far the political commitment of the government towards its young citizens is translated into policy and programme commitments backed by financial outlays. Over the years, child budget analysis has been experimented in several countries across the world such as Brazil, south Africa, Vietnam, palestine, suriname, China etc.

the basic idea behind the laborious, number-crunching task is to draw adequate attention to the needs of the state’s children, to examine the government’s financial commitment and the utilization of resources for children. education, development, health, nutrition, protection and welfare are amongst the most basic elements of child development. While schemes and programmes, which are directly related to the rights of children, there are several social sector schemes and programmes that can be categorized within the broad ambit of the rights to survival, development and protection of children. All these studies have been through the identification of five sectors – development, education, health, welfare and protection – in the analysis of the Budget for Children. the researches were therefore, based on identifying departments that run programmes for children and departments that are directly concerned with children, minutely studying the expense heads in the detailed demands for grants. Child-related expense heads were then segregated from the demands for grants submitted by the all departments. All the data (Budget estimate,


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revised estimate and Actual expenditure) pertaining to the selected heads were entered and tabulated for comparison and analysis.

But in none of these studies an answer to the most basic question was provided - What financial resources are needed to implement child-specific schemes in a manner that they achieve their objectives? And, in absence of this answer the advocates of child rights have not been able to define their demands to ensure the rights of children.



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2. mEThOdOlOgy: ASCErTAININg ThE FINANCIAl rEquIrEmENTin all the exercises of budget analysis the emphasis was only on ascertaining the allocation and expenditure for children and the analysis were done to show the increase or decrease in allocation and expenditure. there have been very few attempts to analyse the government budgets from the first principle, i.e. to ascertain the financial requirements to implement a particular programme/scheme and base the demand for allocation and expenditure on factual financial requirements rather than any percentage increase over the last year or a percentage share in the total budget of the Country or the state or a percentage share in the gdp of the Country or the state.

in this study done by FlAir (Forum for learning and Action with innovation and rigour), three most important national Flagship programmes viz. (a) iCds, (b) iCps, and (c) ssA have been studied in detail and the actual cost requirements have been calculated from the first principle, i.e. Cost Requirement of a Component of a programme has been ascertained on the basis of its unit cost and the number of units required in the whole state (in this study for Bihar and rajasthan). We would like to mention that we have selected the two states of Bihar and rajasthan as two example States and none of the findings from the two states in this study is of comparative nature.

despite huge increase in budget for rural infrastructure and social security schemes in india over the years and despite increased provisions overall in these schemes, the condition of children supposed to benefit from these programmes have not improved much.

The schemes for children still have huge deficit in terms of infrastructural facilities such lack of adequate number of class rooms, child

care centres, health sub-centres, teachers and general staff, homes and welfare committees for children. Despite separate financial norms for these programmes having been developed from the perspective of entitlements of the children for ensuring their due rights, shortfalls are still prevalent.

The financial memorandum for each scheme sets the unit cost for each component and does not factor for cost inflation of the components. moreover, the outlays are not allocated calculating the actual fund requirement based on the present physical gaps of the respective years.

the study therefore envisaged analysing the financial provisioning of these schemes/programmes in two broad ways:

i. the study aims analysis of these three schemes in terms of the unit Cost set for each scheme under different financial memorandum and revised norms provided by the government at different point of times. the physical gaps with respect to access and coverage and progress of each scheme has been taken from state government’s own record or physical data of respective states which are then used to calculate actual fund requirements if those gaps are to be filled. Fund requirement to fill up component/intervention wise physical gaps and actual budget allocations for those components in the Fy 2013-14 by respective state’s governments are compared to conclude how much more to be allocated for a particular scheme.

let us take example of one component each from the selected scheme in the state of Bihar to discuss the method used to calculate required fund based on govt’s financial memorandum.


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In case of ICDS, let us take the component of supplementary nutrition programme that says, i) children in 6-72 months are to be provided with the unit cost of rs.6 per child per day for 300 feeding days; ii) severely underweight children in 6-72 months are to provided with rs. 9 per child per day for 300 feeding days and iii) the pregnant and lactating mothers are to be provided with rs. 7 per woman per day for 300 feeding days. in the absence of actual number of children in 6-72 months age group and the number of pregnant & lactating mothers, who are to be provided with snp, we have assumed that one AWC serves a maximum of 80 children below 6 years, 16 pregnant and lactating mothers in both Bihar and rajasthan. therefore, in 2013-14, 91677 AWCs in Bihar should have covered 73.34 lakh children below 6 years including severely malnourished children, which is 19.02 lakh, based on the calculation that 25.94 per cent of total 73.34 lakh children of 6-72 months are severely malnourished in Bihar. Therefore, child beneficiaries in Bihar should have been 54.32 lakh under 6 years and 19.02 lakh severely malnourished under 6 years. similarly 91677 AWCs in Bihar should have covered 14.67 lakh p&l mothers in 2013-14. Calculation for fund requirement in 2013-14 for these three beneficiaries of SNP has been done as under:

a) Fund to provide snp to Children in 6-72 months in Bihar = 54.32 lakh x rs. 6.00 x 300 feeding days = rs. 97770.22 lakh

b) Fund to provide snp to severely underweight Children in 6-72 months in Bihar = 19.02 lakh x rs. 9.00 x 300 feeding days = rs. 51366.99 lakh

c) Fund to provide snp to pregnant and lactating women in Bihar = 14.67 lakh x rs. 7.00 x 300 feeding days = rs. 30803.47 lakh

Total fund required for SnP in Bihar therefore amounts to Rs. 179940.68 lakh.

In case of SSA, let us take the component of construction of common toilets in Bihar. According to the Flash statistics published by nuepA, there are 71.51 per cent school in Bihar running with common toilet leaving a gap of 28.49 percent school that lacks toilet facility. According to government of Bihar’s own statistics, there are 72876 primary and upper primary schools in Bihar. therefore, as per our calculation there are 20762 schools running without toilet (72876 schoolsx28.49%) in Bihar. going by the revised norm of ssA to provide rs. 75000 towards construction of a toilet, the total fund requirement for construction of all 20762 toilets, amounts to rs. 15571.50 lakh.

In case of ICPS, let us take the example of cost analysis for institutions in Bihar. As per the revised iCps norms to be applied from April 2014, the non-recurring cost for running a home for 50 children estimated by the govt is rs. 19.40 lakh whereas the recurring cost for running a Children home estimated as rs. 36.14 lakh, thus a total amount (recurring and non-recurring) of rs. 55.54 lakh. in case of Bihar, pAB approved recurring grants for 14 government run children homes and recurring as well as non-recurring grants for 6 ngo run homes. therefore the recurring and non recurring cost calculated for all 20 homes amounts to rs. 722.80 lakh and non-recurring grants for 6 ngo run homes amounts to rs. 116.40 lakh, thus the total amount stands at rs. 839.20 lakh.

in this context, it needs to be mentioned that the besides the component/intervention wise revised financial norms already set by the government under ssA and iCds couple of years back, the ministry of Women and Child Welfare came up with a detailed component wise revised unit cost for integrate Child protection scheme(iCps) in current Financial year 2014-15.



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level progrAmme

ssA iCds iCps

Bihar rajasthan Bihar rajasthan Bihar rajasthanstate Bihar

education project directorate, patna

sarva shiksha Abhiyan directorate, Jaipur

social Welfare directorate, patna

iCds directorate, Jaipur

social Welfare directorate, patna

Child rights directorate, Jaipur

district dpo, Khagaria

dpo, Alwar Cdpo, Khagaria and mansi

Cdpo, tonk urban and umren

Assistant director's Office, Khagaria

Assistant director's Office, Tonk

Block Block education Officer, Khagaria and mansi Blocks

Block education Officer, umren and thanagaji Blocks

lady supervisors Khagaria and mansi

lady supervisors tonk urban and umren

nA nA

implementation 5 school each in Khagaria and mansi Blocks

5 schools each in umren and thanagaji Blocks

5 Anganwadi Centres each in Khagaria and mansi

5 Anganwadi Centres in tonk urban and umren

CWC - patna and Khagaria, JJB - patna and Khagaria, Children homes - Apna ghar, nishant home patna, observation home Begusarai, Child line - patna

CWC - Jaipur and tonk, JJB - Jaipur and tonk, Children homes - Jaipur and tonk, observation home – Jaipur, Child line – Jaipur and tonk

Table 2.1: Data Collection and Field Work

ii. A methodology based on planning and programme implementation experience – Apart from the unit costs laid down in the various financial memorandums and the planning documents of the scheme, as part of this study, we also collected data and information on the cost requirements to implement those components of the three national Flagship programmes that have a direct bearing on the children. this estimation was done on the basis of programmatic experience of the practitioners and implementers of the scheme at the grass roots level as well as at the management level. once the details of the programmatic components were estimated we estimated the financial cost on the basis of prevailing market price of the components at the time of data collection, i.e. march 2013.

however, while including an alternate cost requirement of a particular component in this report, we have taken up only those components from the field level experiential study, whose unit cost is at a significant variance with the government’s unit cost.

the programmatic experience in the two states were documented on the basis of discussion at the following planning and implementation points as depicted in table 2.1.


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Table 2.2: Sources of Data

2.1 data Source

overall analysis of union Budget is based on the secondary data available from union government budget documents, publications taken from the different website of government departments. the Budget data for the present study has been sourced from the documents of the state government of Bihar and rajasthan and/or of the Central government, as the case may be, depicted in table 2.2.

the other sources of data were:

• detailed demand for grants, different departments for union and state govt. (refer table below)

department demand no. major head no.

department of school education, government of Bihar 21 2202department of school education , government of rajasthan 24,30,51 2202department of school education and literacy, government of india 58 2202department of social Welfare, government of Bihar 35, 51 2235, 2236department of social Welfare, government of rajasthan 33 2235, 2236ministry of Women and Child development, government of india 105 2235department of health and Family Welfare, government of Bihar 20 2211department of health and Family Welfare, government of rajasthan 26 2211department of health and Family Welfare, government of india 46 2211

• Budget at a glance

• Census of india, 2001 & 2011

• Annual Financial statements, government of Bihar and government of rajasthan

• economic survey, government of india

• socio-economic survey in Bihar

• nFhs -3 reports

• Various web sites of government of Bihar and rajasthan

• Websites of Women and Child Welfare department, sarva shiksha Abhiyan



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2.2 Challenges and limitations

1.the major challenge in conducting this study was getting component/intervention wise budget data for allocation and expenditure for ssA, iCds and iCps in the two states.

2. it must be noted that the budget data that is in the domain of the legislature – i.e. the demand for grants presented and approved in the parliament of india and the state legislative Assemblies are available with ease.

3. the main problem of data availability is at the executive level – where we get component wise details of the allocation and expenditure.

4.the data on physical progress and requirement is incoherent.

5. though component wise Annual Work plan & Budget of ssA and expenditure was available for SSA from the official website of SSA of respective states, however, it could not be

downloaded for all the years due to missing links. personal visits to the departments have not been fruitful to gather component wise budget data for ssA.

6.Component wise central grants for iCps in Bihar and rajasthan for various years were collected from official website of WCD, India. However, expenditure figures for ICPS were not available from secondary sources, neither from official visits to the Department in the two states.

7. in the absence of any intervention/activity wise budget outlays and expenditure data from official website of WCD, we had to gather data Annual report for iCds in rajasthan, whereas no component wise budget data could be found in Bihar.

8.We had to look up the data and information from Project Approval Board (PAB) for financial data. the pAB reports are made available in the public domain with a delay.


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3.1.1 physical status and planning – ssA

1.school infrastructure

there have been positive developments observed every year in both Bihar and rajasthan in terms of improved schooling infrastructure. For example, in Fy 2012-13,

a. in Bihar, 1290 ps were upgraded to ups, 868 new ps were constructed, and libraries were constructed for 12194 ps and 7668 ups. b. in rajasthan 1411 new primary schools were sanctioned for construction and 1402 ps upgraded to ups.

2. school amenities

despite the overall school infrastructure has improve since rte Act, 2009 came into force, a majority of schools in both Bihar and rajasthan still lack basic amenities in school.

a. in Bihar 28.49 per cent of school (all types) lack common toilet; more than 33 per cent lack separate toilet for girls; 48152 government schools lack a playground; 35417 schools lack boundary wall; 33115 schools lack library and 34883 schools lack a kitchen shed to cook mid day meal.

b. in rajasthan, 22.4 per cent school lack common toilet; 40705 government schools lack a playground; 21663 schools lack boundary wall; 45035 schools lack a library and 22375 schools lack a kitchen shed to cook mid day meal.

3. pupil teacher ratio

a.Bihar is lagging behind with pupil teacher ratio still high with 53 pupils for one teacher in ps and 55 pupils for one teacher in ups against the

3. KEy FINdINgS

norms set under rte Act, 2009 at 30:1.

b. rajasthan has improved in terms of attaining the pupil-teacher, as envisaged under the rte Act, 2009 at 23:1 at primary level and 22:1 at upper-primary level.

4. teacher’s Vacancies

there is a huge vacancy of regular teacher against requirement in both the states.

a. Almost 12 per cent ps in Bihar are running with only one teacher; 2.02 lakh regular teachers were appointed against target of 4.02 lakh in Bihar leaving about 2 lakh vacancies.

b. 30 per cent ps in rajasthan running with only one teacher.

5.teachers training

poor quality teaching has resulted in poor learning outcomes among children in both Bihar and rajasthan which is due to the prevalence of untrained regular and para-teachers.

a. About 47 per cent of regular teacher and 46 percent of para-teachers are being trained and placed in government schools in Bihar.

b. rajasthan shows satisfactory distribution of teachers with 96 percent of regular teacher and 83 percent of para-teachers being trained and placed in government schools.

6.Financial Management

there has been substantial delay in planning process under ssA in almost all the states that takes up more time than actual implementation of the programme. the AWp&B comes from

3.1 Sarva Shiksha Abhiyan (SSA)



23

the districts to the spo which are approved much delayed by the pAB and therefore there is a delay in sending back the approved plans to the districts leaving less time to implement the programme. it is clear from our calculations that whatever amount is planned for the state is not approved and further whatever is approved is not released as the release has to be based on actual implementation plans.

a. 37 per cent and 50 per cent of approved budget in Bihar was kept unspent in Fy 2011-12 and Fy 2012-13 respectively.

b. in rajasthan, 72 per cent and 90 per cent of approved budget kept unspent in Fy 2011-12 and Fy 2012-13 respectively.

7. distribution of Fund across Components

A significant proportion of available funds are allocated towards financing infrastructure and paying teachers’ salaries in both Bihar and rajasthan thereby ignoring other components like innovations, training and administrative activities like monitoring.

a. About 45.8 per cent of total fund available in Fy 2013-14 in Bihar went to pay teacher salaries and 32.5 per cent to civil works components.

b.in rajasthan 90.3 per cent of available resources was kept for financing infrastructure in Fy 2013-14.

3.1.2 gap between Fund requirement and Actual Allocations for ssA

Calculating the unit cost as per government’s own financial norms, with the actual physical requirement under each intervention we could observe a huge gap between the fund requirements to fill up physical gaps and the actual budget allocations in both Bihar and rajasthan.

a. As per our calculation, total requirement of fund for ssA as a whole amounts to rs. 20699.10 crore per annum in Bihar against which only rs. 5645.97 crore has been allocated in Fy 2013-14 leaving a gap of rs. 15053.53 crore.

Table 3.1: Fund requirement vs. Actual Allocation in Bihar & Rajasthan Rs. in Crore

interventions Fund requirement per annum

Actual Allocation in Fy 2013-14

gaps Fund requirement per annum

Actual Allocation in Fy 2013-14

gaps

BIhAR RAJASThAn

Access 543.98 158.89 385.09 839.2 19.38 819.82

retention 1775.41 703.89 1071.52 843.83 10.83 833.00

enhancing quality 8033.7 2554.76 5478.94 4084.51 2951.69 1132.82

Annual grants 151.73 110.53 41.20 157.71 63.29 94.42

Bridging gender & social gaps

148.77 61.3 87.47 76.19 19.27 56.92

school infrastructure

9658.1 1837.56 7820.54 1039.10 53.57 985.53

management 387.4 219.05 168.35 150.57 98.62 51.95

totAl 20699.09 5645.98 15053.11 7191.11 3216.65 3974.46


24

b. in rajasthan, requirement of fund under ssA calculated is as rs.7191.10 crore against which the actual allocation has been rs. 3216.64 crore in Fy 2013-14 leaving a shortfall of rs. 3974.47 crore.

the gap between fund requirement and actual allocation on different categories under ssA are presented as under:

1. Access

The first component of ‘Access’ includes components/interventions such as, ‘Opening of new school’, ‘Residential school of special category children’, ‘Residential Hostel’, ‘Transport/escort facilities’ and Special training of mainstreaming out of school Children’.

a. Fund requirement for all these components together calculated as rs. 543.98 crore in Bihar against which actual allocation of only rs. 158.89 crore in Fy 2013-14 has been made leaving shortfall of rs. 385.09 crore.

b. Fund requirement for Access in rajasthan has been calculated as rs. 839.20 crore, against which a meagre allocation of rs. 19.38 crore has been made in Fy 2013-14, leaving shortfall of rs. 819.82 crore.

2. retention

The second component of ‘Retention’ includes components such as ‘Free textbooks’, ‘Uniform to all girls, SCs/STs and BPL’ ‘Teaching Learning Equipment (TLE)’, ‘Furniture in existing government schools’.

a. Fund requirement for retention in Bihar is calculated as rs. 1775.41 crore against which rs. 703.89 crore was allocated in Fy 2013-14 leaving gap of rs. 1071.52 crore.

b. Fund requirement for retention in rajasthan is calculated as rs. 843.83 crore against which

actual allocation has been rs. 10.83 crore in Fy 2013-14 leaving a gap of rs. 833 crore.

3. enhancing Quality

enhancing quality of education includes components such as ‘Teacher’s salary’, ‘Teacher’s training’, ‘Academic Support to BRCs’ and ‘Academic support to CRCs’.

a. enhancing quality altogether needs resource of rs. 8033.70 crore in Bihar against which rs. 2554.76 crore was allocated in Fy 2013-14 leaving gap of rs. 5478.94 crore.

b. Fund requirement towards enhancing quality component calculated as rs. 4084.51 crore in rajasthan, against which rs. 2951.69 crore was allocated in Fy 2013-14, leaving gap of rs. 1132.82 crore.

4. Annual grants

Annual grants includes school grants, maintenance grants and rems activities

a. Annual grants altogether require an amount of rs. 151.73 crore in Bihar against which an actual allocation of rs. 110.53 crore was made leaving a gap of rs. 41.21 crore.

b. Fund requirement towards Annual grants was calculated as rs. 157.71 crore in rajasthan against which an actual allocation of rs. 63.29 crore was made in Fy 2013-14, leaving a gap of rs. 94.43 crore.

5. Bridging gender and social gaps

this is an important component under ssA including activities like ‘Innovative activities for girls including CAL”, ‘ECCE’, ‘Girls Education’, ‘Innovation for SC/ST/Minority Girls’, ‘Provisions for CWSN’ and ‘Training of Community leaders’.



25

a. this component altogether requires a fund of rs. 148.77 crore in Bihar against which rs. 61.30 crore was allocated in Fy 2013-14 leaving a gap of rs. 87.48 crore.

b. in rajasthan, fund requirement for this component has been calculated as rs. 76.19 crore against which only rs. 61.30 was allocated in Fy 2013-14 leaving a gap of rs. 56.92 crore.

6. school infrastructure

Civil works are included under this component for which fund requirements was calculated based on the unit cost provided for each components under Civil Works.

a. Fund requirement for civil works is rs.9658.10 crore in Bihar against which an actual allocation of rs. 1837.56 crore in Fy 2013-14 was made leaving a gap of rs. 7820.54 crore.

b. in rajasthan, fund requirement is rs. 1039.10 crore against which an amount of only rs. 53.57 crore was allocated in Fy 2013-14, thereby leaving a gap of rs. 985.53 crore

7. management

this component includes management and mis at district level, learning enhancement programme and community mobilization along with the state component of project management cost.

a. Fund requirement for this component is rs. 387.40 crore in Bihar against which an actual allocation of rs. 219.05 crore has been made in Fy 2013-14 thereby leaving gap of rs. 168.35 crore

b. Fund requirement for management in rajasthan is rs. 150.57 crore against which an actual allocation of rs. 98.62 crore has been made leaving a gap of rs. 51.95 crore.

3.1.3 unit cost analysis of selected units under ssA – Field study report

Maintenance and Repair of School Buildings (PS and uPS)

Based on our experiential field study, the grant comprise of i) White Washing, painting of doors and Windows and minor repair of walls for 8 classroom, 1 staffroom, 1 head master’s room and 1 varanda, ii) polish of Blackboards (20 sq. ft. each) in 8 classroom and 1 office room and iii) minor repair of furniture, doors windows etc in 8 classroom, 1 staff room, 1 hm room.

1. Fund requirement towards White Washing, painting of doors and Windows and minor repair of walls at the rate of rs. 5 / sq. ft. for four walls and ceiling inside and outside for 4200 sq. ft. (8 Classrooms of 400 sq. ft. each, 300 sq. ft. for staff room, 200 sq. ft. for headmaster-cum-Office room and 500 sq. ft. of verandah) calculated as rs.21000 per school per year.

2. Fund requirement for polish of Blackboards (20 sq. ft. each) at the rate of rs.2/sq. ft. for 9 rooms (8 classrooms and 1 headmaster cum Office room) calculated as Rs.360 per school per year.

3. Fund requirement for minor repair of furniture and minor repair of door and Windows - Wood and glass at the rate of rs. 500 per class per annum for 10 rooms (8 Classrooms, 1 staff room, and 1 headmaster-cum-office room) calculated as Rs. 5000 per school per year.

As per the unit cost derived from field study, a total amount of rs. 26360 is to be allocated towards maintenance grant per school per year against the present norm of only rs 7500/school/year.

Based on this cost of rs. 26360 per school per year, the financial requirement is Rs. 27405.96 crore for Bihar for 103968 ps & ups and rs.


26

28410.54 crore for rajasthan for 107779 ps & ups. Against this requirement the actual allocation towards maintenance and repair of school Buildings stands at only rs. 4698.18 crore for Bihar whereas there is no allocation for this component in rajasthan. this explains the dilapidated and shabby physical conditions of the government schools in Bihar and rajasthan.

3.1.4 under expenditure in sarva shiksha Abhiyan (ssA)

Capital intensive interventions had maximum under utilization in both Bihar and rajasthan.

in Bihar, out of total allocated funds, 66 per cent for ‘Infrastructure’, 72 per cent for ‘training’, 80 per cent for ‘special training for OOSC’ and 57 per cent for ‘teacher’s salaries’ were unspent in Fy 2012-13.

in rajasthan, 58 per cent of total fund towards infrastructure was unspent in 2012-13 along with other important interventions like - special training to mainstream out of school children, teachers training, innovative activities and inclusive education saw huge under expenditure where 52 per cent, 30 per cent, 36 per cent and 20 per cent of allocated funds were unutilized.

Figure3.1: Percentage unspent in SSA in Bihar, 2013-14

Figure 3.2: Percentage unspent in SSA in Rajasthan, 2013-14

0

10

20

30

40

50

60

70

80

TrainingDistribution of Textbooks, Uniforms

Out of school Children

InfratructureTeacher's Salary

56.6

66.4

79.8

39.8

71.7

0 10 20 30 40 50 60

Teacher's Training

Special Training

Inclusive Education

Total Civil Works

Community Mobilisation

Innovative Activity

Community Training 30

35.9

55

57.7

20

52.2

29.5



27

3.2 Integrated Child development Services (ICdS) Scheme

3.2.1 physical status and planning

1. Coverage

Coverage under supplementary nutrition programme (snp) and pre-school education (pse) has been lower than the actual requirements in Bihar, rajasthan and All india.

a. in Bihar, the supplementary nutrition programme covered about 47 per cent of total children under 6 years of age; 48 per cent of total pregnant and lactating mothers. out of 91677 centers sanctioned in Bihar only 39,331 centres are imparting pre-school education to 19.37 lakh children.

b. in rajasthan, the supplementary nutrition programme covered 60 per cent of total children under 6 years of age; 95 per cent of total pregnant and lactating mothers. 11.14 lakh children were covered through 58766 AWCs providing pse in rajasthan.

c. in india, the supplementary nutrition programme covered 72 per cent of total children under 6 years of age and 85 per cent of total pregnant and lactating mothers. 353.29 lakh children were covered through 1231687 lakh AWCs providing pse in india.

2. infrastructure

As per government’s norm, there has to be one Anganwadi Centre (AWC) per 400-800 population. therefore, considering the maximum population of 800 for one Anganwadi Centre we could calculate that there is a huge requirement of AWC in both the state against the actual number functioning.

a. Against the required number of 129755 AWCs in Bihar, according to the population norm, only 91968 AWCs have been sanctioned. Bihar is, therefore, in need of 37,787 centers to cover targeted population, as envisaged in the scheme. operational AWCs are much less at 91677 in Bihar, as of december 2013.

b. in rajasthan, against required number of 85776 AWCs according to the population norm, only 61119 centers have been sanctioned, leaving a gap of 24,657 AWCs to cover targeted population, as envisaged in the scheme. operational AWCs are much less at 61100 in rajasthan, as of december 2013.

c. in india, to cover 12101.93 lakh population as per Census 2011, required number of AWCs was 1512742 against which 1374935 AWCs have been sanctioned leaving a gap of 137807 AWCs. operational AWCs are much less at 1339998 in india, as of december 2013.

3. human resources

huge shortage of staff at all levels in both Bihar and rajasthan hinders effective implementation of the programme.

a. there is a vacancy of 1793 supervisors in Bihar as a result of which one supervisor is in charge of 53 AWCs in the state. 10,000 posts of AWW and 10,655 posts of Anganwadi helpers in Bihar are lying vacant. in Bihar, 10291 posts of AWW and 5506 posts of AWhs are lying vacant as of december 2013

b. in rajasthan, out of 443 posts of Cdpo sanctioned, only 218 are actually posted resulting in an average 280 AWC under responsibility of one Cdpo in the state. there is a vacancy of 967 supervisors in rajasthan; as a result one supervisor is in charge of 40 AWCs. in rajasthan, 3203 posts of AWWs and 8952 posts of AWhs were lying vacant as of december 2013.


28

c. in india, out of 9036 Cdpo posts sanctioned, only 5985 are actually posted; 19464 posts of supervisors, 100212 posts of AWW and 90671 posts of AWhs were lying vacant as of december 2013.

4. training and capacity building of implementing staff

there is considerable training backlog for Cdpos and supervisors hindering the monitoring and supervision mechanism of the programme. irregularity in training for AWWs also impedes effective service delivery in the centers.

5.Fund allocation across activities

Budget for iCds is given under two broad heads - iCds (general) and supplementary nutrition. the fund allocated for iCds general cover all the non-food expenditure, but the fund for iCds general is not broken down further on specific components and therefore there is no clarity on how much is provided in a disaggregated manner for other important services such as pre-school education, health services, growth monitoring etc.

3.2.2 gap between Fund requirement and Actual Allocations for iCds

Comparing total fund requirements based on the revised financial norms set by the government on different services with overall allocation under ICDS, we could find out huge gap in terms of budgetary provision to fill up the existing physical gaps in both Bihar and rajasthan.

ICDS in Bihar

1.overall gap: taking into account all the component/interventions under iCds in Bihar, to cover all the existing physical gaps as well as cover the beneficiaries under universalization of iCds, total fund requirements in Fy 2012-13, Fy 2013-14, and Fy 2014-15 calculated as rs.

3464.78 crore, rs. 3758.68 crore & rs. 4032.13 crore respectively in Bihar against which rs. 1899.66 crore, rs.1959.89 crore and rs. 2253.45 crore have been actually allocated in these three years. therefore, gap between requirement and allocatuons stand at rs. 1667.85 crore, rs. 1798.79 crore and rs. 1778.68 crore in Fy 2012-13, Fy 2013-14 and Fy 2014-15 respectively.

Component wise allocations for ICDS in Bihar:

a. Fund for snp: Budgetary requirement to cover beneficiaries of Supplementary Nutrition programmes, for the Fy 2012-13, Fy 2013-14 and Fy 2014-15 calculated as - rs.1397.77 crore, rs. 1520.61 crore and rs. 1799.41 crore respectively, against which actual allocations (mentioned in detailed demand for grants) stands at rs. 1074.81 crore, rs. 1717.99 crore and rs. 1413.66 crore. there is a shortfall of allocation by - rs. 322.96 crore in Fy 2012-13, rs. 197.38 crore in 2013-14, and rs. 385.75 crore in Fy2014-15.

b. iCds general: Considering that the remaining fund after calculating fund for supplementary nutrition programme is under iCds general, the total fund requirement for iCds general, as per our unit cost calculations stands at rs. 2169.74 crore, rs. 2238.08 crore and rs. 2232.72 crore in Fy 2012-13, Fy 2013-14 and Fy 2014-15 respectively, against which actual allocations in Bihar have been rs. 736.60 crore, rs. 947.14 crore and rs. 839.79 crore respectively, leaving shortfall of rs. 1433.14 crore, rs. 1290.94 crore and rs. 1392.93 crore.

c. Fund for Construction of AWC:

Based on our calculation, the total fund requirement towards construction, irrespective of the source of fund, for the 60273 AWCs stands at rs. 2712.29 crore in accordance with the norm for Construction of rs. 450000 per AWC building for all states other than ne region states.



29

Table 3.2: Fund Requirement vs. Actual Allocation in Bihar, Component-Wise (Rs. in Crore)

Components 2012-13 2013-14 2014-15SnP requirement 1397.77 1520.61 1799.41

Allocation 1074.81 1717.99 1413.66gap 322.96 197.38 385.75

ICDS general requirement 2169.74 2238.08 2232.72Allocation 736.60 947.14 839.79gap 1433.14 1290.94 1392.93

Figure 3.3: Fund Requirement vs. Actual Allocation for ICDS in Bihar (Rs. in crore)

3758.684032.13

0

1000

2000

3000

4000

5000

FY2014-15FY2013-14FY2012-13

1899.66 1959.892253.45

3567.51

Fund requirement Actual Allocation


30

ICDS in Rajasthan

1.overall gap

taking all the component/interventions under iCds in rajasthan to cover all the existing physical gaps as well as cover the beneficiaries under universalization, total fund requirements in iCds for Fy 2012-13, Fy 2013-14, Fy 2014-15 calculated as rs.2089.07 crore, rs.2098.30 crore and 2295.24 crore respectively. Against these requirements, actual allocations are far below at rs.1244.22 crore, rs.1408.11 crore and rs. 1725.68 crore, leaving shortfalls of rs.844.85 crore (40% of required fund), rs.690.19 crore (33% of required fund) and rs. 569.56 crore(25% of required fund) in Fy 2012-13, Fy 2013-14 and Fy 2014-15 respectively.

Component wise allocations for ICDS in Rajasthan:

a. Fund for snp:

Fund requirements to cover beneficiaries under snp in rajasthan calculated as rs. 901.09 crore in Fy 2012-13 and Fy 2013-14, rs. 1086.59 crore in Fy 2014-15. Actual allocations on supplementary nutrition programme as of FY 2012-13 (the latest available figures on different components wise allocations) stands at rs.680.44 crore in rajasthan, leaving a gap of rs. 220.65 crore.

b. training for Cdpos/supervisors/AWW:

Fund required to provide training to Cdpos/ACdpos, supervisors and AWW/AWhs as per the norms stands at Rs. 5881.85 crore in Fy 2012-13, Fy 2013-14 and Fy 2014-15, whereas a minuscule amount of RS. 6.68 crore has been provided in Fy 2012-13. There was a shortfall of Rs. 4653.84 crore in Fy 2012-13.

c. Construction cost of AWC:

As per the Annual progress report (iCds & We) 2012-13 in rajasthan, there are 16388 AWCs are running in rented building for which establishment cost of rs.450000 has to be provided under universalization of iCds. Fund requirement for construction of building for all 16388 AWCs calculated as Rs. 737.46 crore against which only Rs. 18.67 crore has been provided in 2012-13, leaving a gap of Rs. 718.79 crore.

d. maintenance of government owned Buildings:

Allocation required for 40934 AWCs running in government owned buildings in rajasthan calculated as Rs. 8.19 crore and against this requirement Rs.5 crore has been provided in Fy 2012-13 leaving a gap of Rs.3.19 crore.

e. staff salaries:

Fund requirement towards honorarium of 61100 AWWs sanctioned in rajasthan amounts to Rs. 219.96 crore whereas only a meagre amount of Rs. 27.72 crore had been allocated in Fy 2012-13.



31

Components Fund Requirement Actual Allocation gapsnp 901.09 680.44 220.65

training for Cdpos/supervisors/AWW 5881.85 6.68 4653.84Construction cost of AWC 737.46 18.67 718.79maintenance of government owned buildings 8.19 5 3.19

staff salaries 219.96 27.72 192.24

Table 3.3: Fund Requirement vs. Actual Allocation in Rajasthan, Component-Wise, Fy 2012-13 (Rs. in Crore)

Figure 3.4: Fund Requirement vs. Actual Allocation for ICDS in Rajasthan (Rs. in Crore)

0

500

1000

1500

2000

2500

FY2014-15FY2013-14FY2012-13

2089.07

1244.22

2098.3

1408.11

2295.24

1725.68



32

3.2.3. unit cost analysis of selected units under iCds – Field study report

3.2.3.a supplementary nutrition programme

The unit cost for SNP beneficiaries per day as per our field study is calculated as, Rs. 12.04 per child (of 6-72 months) per day; rs. 24.06 per severely malnourished child per day and rs. 25.87 per pregnant and lactating mothers per day. this is against the revised norms for iCds of rs. 6 per child per day, rs. 9 per severely underweight child per day and rs. 7 per pregnant Woman and lactating mother per day.

I. SnP in Bihar: Fund requirement for 54.32 lakh children in the age group of 6 to 72 months in Bihar @rs.12.06 per child per day for 300 feeding days is calculated as Rs. 1965.18 crore; Fund for 19.02 lakh severely underweight children @rs.24.06 per child per day for 300 feeding days is calculated as rs. 1373.21 crore and fund for 14.67 lakh pregnant women and lactating mothers @rs.25.87 per woman per day for 300 feeding days is calculated as Rs. 1138.41 crore. Thus, total fund requirement for SnP stands at Rs. 4476.80 crore.

II. SnP in Rajasthan: Fund requirement for 48.89 lakh children under 6 years of age in rajasthan @rs.12.06 per child per day for 300 feeding days is calculated as rs. 1768.48 crore; Fund for 16130 severely malnourished children @rs.24.06 per child per day for 300 feeding days is calculated as rs. 11.64 crore and fund for 9.78 lakh pregnant Women and lactating mothers @rs.25.87 per woman per day for 300 feeding days is calculated as rs. 758.72 crore. thus, total fund requirement for snp stands at rs. 2538.84 crore.

3.2.3.b pre-school education

Cost per pse kit per annum per AWC as per our field study is calculated as Rs. 23,980 against the present norm of rs. 3000 per kit per AWC per annum. taking this norm to be applicable for smooth functioning of pse in every AWC, total fund requirement for pse calculated as:

I. Rs. 219.84 crore for 91677 AWC in Bihar, and

II. Rs. 146.52 crore for 61100 AWC in rajasthan.



33

3.2.4. under expenditure – iCds

1. under spending of available fund poses concerns hampering effective implementation of the scheme. on an average 26.5 percent of allocated fund for iCds in Bihar kept unspent between 2011-12 and 2012-13. similarly, for rajasthan, Fy 2012-13 shows a huge under spending by rs. 631.04 crore which is more than 45 per cent of available resources.

a. in Bihar, out of total fund allocation for iCds – general, rs. 266.58 crore and rs. 138.78 crore were unspent in Fy 2011-12 and Fy 2012-13 respectively. similarly, out of total fund allocation for snp, rs. 400.16 crore and rs. 186.36 crore

Figure 3.5: Percentage of Allocated Funds kept unspent in ICDS in Bihar

Figure 3.6: Percentage of Allocated Funds kept unspent in ICDS in Rajasthan

were unspent in Fy 2011-12 and Fy 2012-13 respectively

b. rajasthan shows under-utilization of available fund for important components under iCds. For example, 19.2 percent and 47.1 percent of allocated fund for snp kept unspent in Fy 2011-12 and Fy2012-13; 48.3 percent and 63.4 percent of allocated fund for training peogramme kept unspent in Fy 2011-12 and Fy 2012-13 respectively; 14.7 percent of fund for honorarium to AWh kept unspent in Fy 2011-12; 26.7 percent and 43.8 percent of fund for iCds general kept unspent in Fy 2011-12 and Fy 2012-13 respectively.

0

5

10

15

20

25

30

35

40

2012-132011-12

35.07

17.95

0

10

20

30

40

50

2012-132011-12

7.1

45.4


34

3.3 Integrated Child Protection Scheme (ICPS)

3.3.1 physical status and planning - iCps

1.scheme still in nascent stage: mou to implement and carry out activities under iCps have been signed for Bihar and rajasthan in 2010. the rajasthan state Children protection society (rsCpC) has been registered on February 2011, yet implementation has not gained momentum. district Child protection units (dCpu) have been formed in all 38 districts of Bihar and 33 districts of rajasthan. however, none of the dCpus are functional. till date iCps managed only the orientation/training and formation of dCpu in all the districts.

2. staff Vacancies: staff positions in sCps and DCPUs are not filled up even after signing of mou in 2010 in both Bihar and rajasthan. According to the minutes of 82nd pAB meeting under iCps for the state of Bihar, held on 03-01-2014, only 2 out of 13 staff positions of state Child protection society (sCps) and 66 out of 456 positions of district Child protection unit (DCPU) were filled, leaving huge vacancies.

3. support services: statutory bodies such as CWC, JJB are the two most important functionaries directly dealing with children in difficult circumstance. However, there is complete lack of support system either from the government or from the ngos. this combined with lack of financial provisions; lack of infrastructure, etc. has rendered the scheme a non starter. though there is a position for data entry operator for typing orders/ keeping records/case studies/serving summons or orders, keeping office clean etc., members of CWC and JJB have informed about lack human resources & support services from the government.

4. provision for special Children in institutional Care: Children with special needs are not getting the required attention owing to the lack of separate facility or trained staff/resource teacher to cater to their needs in the existing homes.

3.3.2 gap between Fund requirement and Actual Allocations for iCps

Based on the unit cost norm set by the government through revised financial memorandum of 2014, calculation of total fund requirement shows huge gap in actual fund requirement for effective implementation and the actual budget allocations.

1.overall iCps:

a.total fund requirement taking up all the components under iCps in Bihar calculated as per the revised cost as rs.5309.43 lakh. Actual allocation for iCps as a whole stands at rs.1324.41 lakh in Fy 2013-14. Therefore, there is a resource gap of Rs.3985.02 lakh in Bihar in the Fy 2013-14.

b. total fund required for all the components under iCps in rajasthan as per the revised unit cost of goi calculated as, rs. 9912.66 lakh in rajasthan. An amount of rs. 3737.86 lakh was actually provided for iCps as a whole in the Fy 2013.14. Therefore, there is a shortfall of Rs. 6174.80 lakh in the Fy 2013-14 in Rajasthan.

2. state Child protection society (sCps):

total fund allocation for a unit of sCps as per the revised norms is rs. 226.78 lakh in both Bihar and rajasthan.

a. An amount of rs.37.04 lakh has been provided in Fy 2013-14 leaving a shortfall of rs. 189.74 lakh in Bihar



35

b. rs. 71.26 lakh has been provided in Fy 2013-14 leaving a shortfall of rs. 155.52 lakh in rajasthan.

3. state project support unit (spsu):

total fund requirement as per the revised iCps norm for the functioning of spsu is calculated as rs. 448 lakh per annum in both Bihar and rajasthan.

a. An amount of only rs. 35.93 lakh has been allocated in Bihar, leaving is a resource gap of Rs. 412.07 lakh.

b. in rajasthan, there is no allocation towards spsu, thus the gap is rs. 448 lakh.

4. district Child protection unit (dCpu):

a. Against a fund requirement for 2172.46 lakh for 38 dCpus, at the rate of rs. 57.17 lakh per dCpu per annum in Bihar, an amount of rs. 458.87 lakh has been allocated in Fy 2013-14 leaving shortfall of rs.1713.59 lakh for 38 dCpus in Bihar.

b. Against a fund requirement of rs. 1886.61 lakh for 33 dCpus in rajasthan, at the rate of rs. 57.17 lakh per dCpu per annum, an amount of rs.881.10 lakh has been allocated. there is a shortfall of rs. 1005.51 lakh for 33 dCpus in rajasthan.

5. open shelter

a. Against the fund requirement of rs. 225.38 lakh for 9 open shelters in Bihar at the cost of rs. 25.04 lakh per annum per shelter, rs. 72.22 lakh was allocated in Fy 2013-14, leaving a gap in of rs. 153.16 lakh

b. Against the fund requirement of rs. 430.14 lakh for 20 open shelters in rajasthan at the cost of rs. 25.04 lakh per annum per shelter, rs. 186.51 lakh was allocated in Fy 2013-14, leaving a shortfall of rs. 243.63 lakh.

6. state Adoption Agency(sAA)

a. Fund requirement at the cost of rs. 17.85 lakh per annum per sAA, for 2 existing and 8 additional sAAs in Bihar calculated as rs. 173.8 lakh against which an amount of rs. 42.66 lakh has been allocated in Fy 2013-14 leaving a shortfall of rs. 131.44 lakh in Bihar

b. Fund requirement at the rate of rs. 17.85 lakh per annum per sAA, for 33 sAAs in rajasthan is calculated as rs. 539.7 lakh, against which an amount of rs. 256.05 lakh has been allocated in Fy 2013-14, leaving a shoryfall of rs.283.65 lakh in rajasthan.

7. Children/observation/special homes

a. there are 28 government run and 6 ngo run homes in Bihar, as per government’s own record. At the rate of rs. 55.54 lakh per home/annum towards maintenance of these institutions/homes, total fund requirement is calculated as rs. 1228.76 lakh in Bihar against which an actual allocation of rs. 380.69 lakh in Fy 2013-14 has been made leaving a shortfall of rs.848.07 lakh.

b. At the rate of rs. 55.54 lakh per home/annum towards maintenance of 89 institutions/homes in rajasthan, total fund requirement is calculated as rs. 3032.32 lakh against which an actual allocation of rs. 380.69 lakh has been made in Fy 2013-14, leaving a shortfall of rs. 1221.14 lakh. there was a fund requirement of rs. 2625.80 lakh towards construction of 20 institutions/homes in rajasthan at the cost of rs. 131.1 lakh, against which an amount of rs. 250.82 lakh allocated in Fy 2013-14 leaving a gap of rs. 2374.98 lakh.

8. Child Welfare Committee (CWC)

a. Fund requirement towards maintenance grants for 38 CWCs in Bihar is calculated as rs. 449.35 lakh, against which rs.165.63 lakh has been allocated in Fy 2013-14, leaving a shortfall of rs. 283.72 lakh.


36

b. Fund requirement towards maintenance grants for 33 CWCs in rajasthan is calculated as rs. 390.23 lakh, against which rs. 156.42 lakh has been allocated in Fy 2013-14, leaving a shortfall of rs.233.81 lakh.

9. Juvenile Justice Board (JJB)

a. Fund requirement towards maintenance grants for 38 JJBs in Bihar is calculated as rs.

358.15 lakh against which rs. 113.87 lakh has been allocated in Fy 2013-14 thereby leaving a shortfall of rs. 244.28 lakh.

b. Fund requirement towards maintenance grants for 33 JJBs in rajasthan is calculated as rs. 311.03 lakh, against which rs.116.82 lakh has been allocated in Fy 2013-14, leaving a shortfall of rs. 194.21 lakh.

Figure 3.7: Fund Requirement vs. Allocation for ICPS in Bihar, Fy 2013-14 (Rs. in Crore)

Figure 3.8: Fund Requirement vs. Allocation for ICPS in Rajasthan, Fy2013-14 (Rs. in Crore)

5304.73

3980.32

1324.41

0

1000

2000

3000

4000

5000

6000

GapAllocationRequirement

9912.66

3737.86

6174.8

0

2000

4000

6000

8000

10000

GapAllocationRequirement



37

Bih

Ar

rA

JAst

hA

n

sl.

no

Com

pone

nts

no

of

unit

Cos

t

per

unit

Budg

etar

y

req

uire

men

t

per

annu

m

Act

ual

Allo

catio

n in

Fy

201

3-14

res

ourc

e

gap

no

of

unit

Cos

t

per

unit

Budg

etar

y

req

uire

men

t

per

annu

m

Act

ual

Allo

catio

n

in F

y

2013

-14

res

ourc

e g

ap

1st

ate

Chi

ld p

rote

ctio

n so

ciet

y

(sC

ps)

122

6.8

226.

7837

.04

189.

741

226.

822

6.78

71.2

615

5.52

2st

ate

Chi

ld p

rote

ctio

n u

nit

(sC

pu)

144

844

835

.93

412.

071

448

448

044

8

3d

istr

ict

Chi

ld p

rote

ctio

n u

nit

(dC

pu)

3857

.17

2172

.46

458.

8717

13.5

933

57.1

718

86.6

188

1.1

1005

.51

4st

ate

Ado

ptio

n r

esou

rce

Age

ncy

(sA

rA

)

122

.05

22.0

517

.54.

551

22.0

522

.05

7.7

14.3

5

5o

pen

shel

ters

for

a u

nit

of 2

5

Chi

ldre

n

925

.04

225.

3872

.22

153.

1620

25.0

443

0.14

186.

5124

3.63

6st

ate

Ado

ptio

n A

genc

y (s

AA

)

for

a u

nit

of 1

0 C

hild

ren

2 ex

istin

g

new

17.8

517

3.8

42.6

613

1.14

3317

.85

539.

725

6.05

283.

65

7m

aint

enan

ce o

f ins

titut

ions

/

hom

es w

ith 5

0 ch

ildre

n

28

gov

t. ru

n

6 n

go

run

55.5

412

28.7

638

0.69

848.

0789

55.5

430

32.3

218

11.1

812

21.1

4

8C

onst

ruct

ion

and

mai

nten

ance

of in

stitu

tions

/hom

es w

ith 5

0

child

ren

--

--

-20

131.

326

25.8

250.

8223

74.9

8

9m

aint

enan

ce g

rant

s fo

r ex

istin

g

CW

Cs

3811

.82

449.

3516

5.63

283.

7233

11.8

239

0.23

156.

4223

3.81

10m

aint

enan

ce g

rant

s fo

r ex

istin

g

JJBs

389.

4235

8.15

113.

8724

4.28

339.

4231

1.03

116.

8219

4.21

gr

An

d t

otA

l…

…

53

09.4

313

24.4

139

85.0

233

9.42

311.

0311

6.82

194.

21

Tabl

e 3.

4: T

otal

Fun

d R

equi

rem

ents

and

Act

ual A

lloca

tion

on

diffe

rent

Com

pone

nts

of IC

PS,

Sta

te W

ise

(R

s in

lak

h)


38

3.3.3 unit cost analysis of selected units under iCps – Field study report

Creating and maintaining a child friendly environment in CWC and JJB

1. total fund requirement for Creating and maintaining a child friendly environment including painting of rooms, indoor games in CWC and JJB, derived from our empirical field study stands at rs. 67,800 per annum. however, actual grant sanctioned by the government for this component, as per the revised norms of iCps is only rs. 7500 per annum, which is far below than the actual requirement.

2.in Bihar, fund requirement for Creating and Maintaining a Child Friendly Environment at the rate of rs.67800 per CWC/JJB for 38 CWC and 38 JJBs calculated as rs. 25.76 lakh against which actual grant sanction has been rs. 2.85 lakh, leaving a huge gap of rs. 22.91 lakh.

3.in rajasthan, fund requirement for Creating and Maintaining a Child Friendly Environment at the rate of rs.67800 per CWC/JJB for 33 CWC and 33 JJBs calculated as rs. 22.37 lakh against which actual grant sanction has been rs. 2.48 lakh, leaving a gap of rs. 19.89 lakh.



39

Figure 3.9: Percentage of Allocated Funds kept unspent for ICPS in Bihar

Figure 3.10: Percentage of Allocated Fund kept unspent for ICPS in Rajasthan

3.3.4 under expenditure - iCps

1. in a situation where iCps is in the initial stage in terms of implementation in all the states in india including Bihar and rajasthan, under utilization of available resources poses serious concern.

2. in the Fy 2012-13, only rs. 8.73 crore out of total allocated amount of rs. 45.65 crore has

been utilised, thereby leaving rs. 36.93 crore (about 81 per cent of the allocated funds) unspent in Bihar.

3. in rajasthan, rs.344.45 crore of allocated funds (32 per cent) in Fy 2011-12 and rs. 721.52 crore of allocated funds (30 percent) in Fy 2012-13 was unspent for iCps.

2011-12

2011-12

2012-13

2012-13

80.9

0

0

20

40

60

80

100

2012-132011-12

32 30

0

5

10

15

20

25

30

35

2012-132011-12


40



41

SArvA ShIKShA AbhIyAN (SSA) IN AlIgNmENT wITh ThE rTE ACT 2009

BooK ii


42

Bihar & rajaSthan (2012-13 to 2014-15)

Sarva Shiksha abhiyan, integrated Child development Services Scheme and integrated Child Protection Scheme 43

CONTENTS1. InTRoDuCTIon .......................................................... 45

1.1 sarva shiksha Abhiyan and elementary education ..............................45

1.2 ssA - in Alignment with rte Act, 2009 ..................................................47

2. PhySICAl STATuS oF SSA: CoVERAgE AnD gAPS ................................................................................ 48

2.1 state’s scenario: Bihar and rajasthan at a glance ..................................48 2.1.1 positive developments .....................................................................................48 2.1.2 gaps in the school infrastructure and Amenities ......................................49

3. CoMPonEnT-WISE CoSTIng unDER SSA – FunD REquIREMEnT VS. ACTuAl AlloCATIon ............ 52

3.1 Component wise Fund requirement vs. Actual Allocations for ssA in Bihar ..............................................................52

3.2 Component wise Fund requirement vs. Actual Allocations in rajasthan ....................................................................................................60

4. unIT CoST AnAlySIS oF SElECTED unITS unDER SSA .................................. 68

5. FInAnCIng oF SSA (RTE ACT, 2009) ....................... 69

5.1 Financial provisioning for ssA in All india ............................................70

5.2 Financial provisioning for ssA in Bihar ..................................................71

5.2.1 overall allocation for ssA in Bihar ................................................................71

5.2.2 Fund distribution across components in Bihar ............................................72

5.2.3 Fund requirement vs. Actual Allocation in Bihar ..........................................74

5.2.4 Actual Allocation vs. spending in Bihar ..........................................................76

5.3 Financial provisioning under ssA in rajasthan ......................................78

5.3.1 overall allocation for ssA in rajasthan .........................................................78

5.3.2 Fund distribution across components in rajasthan ....................................79

5.3.3 Fund requirement vs. Actual Allocation for ssA in rajasthan ...................81

5.3.4 Allocation vs. Actual expenditure in rajasthan ...........................................83


44

table

table 1.1: elementary education as % of total state Budget ..................................................................46table 1.2: outlays and expenditure on elementary education in the two states

and All india ..........................................................................................................................................46table 1.3: norms and standards under rte Act, 2009 ............................................................................47table 2.1: norms and standards under rte Act 2009 ............................................................................55Table 3.1: Component wise fund requirement as per financial norms Vs. Actual fund

allocation under ssA – BihAr ........................................................................................................55table 3.2: Component wise Fund requirement as per Financial norms Vs. Actual fund

allocation under ssA – rAJAsthAn ............................................................................................63Table 4.1: Costing for school level component based on empirical field study .................................68table 5.1: Costs towards implementation of rte through ssA during 2010-11 to 2014-15 .........69table 5.2: Approved Allocation, releases and expenditure under ssA in india ................................70table 5.3: Approved allocation, releases and expenditure under ssA in Bihar ................................71table 5.4: different Category wise percentage of actual outlays for ssA in Bihar ...........................73table 5.5: Fund requirement vs. Actual Allocation for ssA in Bihar......................................................75table 5.6: Component wise Allocation and spending in Bihar ...............................................................77table 5.7: Approved allocation, releases and expenditure under ssA in rajasthan .........................78table: 5.8:different Category wise percentage of actual outlays for ssA in rajasthan ....................80table 5.9: Fund requirement vs. Actual Allocation in rajasthan ..............................................................82table 5.10: Allocation and expenditure, Component wise in rajasthan ..............................................84

Figure

Figure 2.1: pupil-teacher ratio at ps and ups ..........................................................................................49Figure 2.2: single teacher and single Classroom ps ................................................................................49Figure 2.3: situation of availability of toilets and drinking in Bihar ......................................................50Figure 2.4: situation of availability of toilets and drinking in rajasthan ................................................50Figure 2.5: situation of availability of toilets and drinking in All india ...................................................51Figure 5.1: percentage distribution of interventions in Bihar .................................................................72Figure 5.2:Fund requirement vs. Actual Allocation in Bihar ....................................................................75Figure 5.3: unspent in ssA in Bihar (in percentage) -Average of 2011-12 and 2012-13 .................76Figure 5.4:Fund distribution across components in rajasthan ..............................................................78Figure 5.5:Fund requirement vs. Actual Allocation for ssA in rajasthan .............................................82Figure 5.6: percentage under expenditure on major components, rajasthan, 2012-13 ..................83

Box

Box 1.1: revising ssA’s Financial norms in alignment to the rte Act, 2009 ....................................46Box 5.1: Financial estimations by nuepA .................................................................................................70Box 5.2: Why does the amount of allocation of particular financial year mentioned in the ddg not match with the amount mentioned in the AW p&B of the state? ......................71

sarva shiksha Abhiyan (ssA)in alignment with the rte Act 2009

45Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme

1. INTrOduCTION

education is the second most important “mdg” (millennium development goal) and india is one of the signatories to the mdg. All the signatory countries have to achieve the target of ensuring completion of a full course of primary schooling by 2015. the recent enactment of rte Act, 2009 imposes a duty on the Indian State to fulfill every child’s right to elementary education and thus becomes a strong vehicle to demand state action and accountability.

the states (provinces) of india have been playing their role with public finance in fulfilling responsibilities by providing educational services, health care, and nutrition, yet inadequate and skewed allocation pattern is visible at the level of the state (province) budgets in most of the states in india. Allocation on education has not been adequate both in the union as well as state’s budgets.

despite Kothari Commission’s recommendations over 40 years ago to spend 6 per cent of gdp on education, present total public spending on education in india (comprising all education schemes by education department as well as all other departments) stands at 3.4 per cent of gdp. states share is also not more than 3 per cent of gsdp if we take the recommendation as a standard for states as well. A decline in the public spending as proportion to gdp in india indicates the decreasing priorities of government for education. the 12th Five-year plan Approach paper makes no mention of the 6 per cent target set over 40 years ago, instead talks about prioritising universalisation of secondary education by 2017.

1.1 Sarva Shiksha Abhiyan and Elementary Education

Analysing outlays and expenditures by education department in Bihar and rajasthan, as an example, one can find that of total budgetary allocation in education, about 50 per cent is for elementary education. however, comparing with the state Budget, in our case of Bihar and rajasthan, the share of elementary education in total state budget of Bihar increases from 9.19 percent to 13.13 percent over last 4 years whereas the share in rajasthan shows a decline between 2011-12 and 2012-13 from 10.10 percent to 8.58 percent, though the share increases thereafter (refer table 1.1).

As seen in table 1.2, outlay in elementary education in india has increased from rs. 32027 crore in 2011-12 to rs. 42516 crore in present Fy 2014-15. state budget outlays for elementary education increased by rs. 8665.89 crore and rs. 4048.18 crore in Bihar and rajasthan respectively between Fy 2011-12 and Fy 2014-15.

A detailed look at the scheme wise2 elementary education budget for india as well as states reveals that within the elementary education budget in india, more than 65 per cent of available fund goes towards the programme – Sarva Shiksha Abhiyan (SSA) – which is the government of India’s flagship for delivering education to india’s children till Class Viii and another 31 percent of fund available for india in Fy 2014-15 goes to mdm in school. similarly share of ssA budget in Bihar and rajasthan comprises the maximum share in elementary education budget - 45 percent in Bihar and 21 per cent in rajasthan as per allocations in Fy 2014-15.

A detailed study of ssA in alignment with rte Act 2009 for the sample states of Bihar and


46

box 1.1: revising SSA’s Financial Norms in alignment to the rTE Act, 2009

To implement the scheme as per requirements of RTE Act, 2009 a revision of the financial norms for specific components within the schemes was necessitated. However, a detailed analysis of component wise unit cost reveals that the financial norms are not adequate for the many components.

to cite few components, government subsidised textbooks and 2 sets of uniform for all children at elementary level are provisioned at the cost of upper ceiling of rs. 150 per child at primary level and rs. 250 per child at upper primary level for textbooks and only rs. 400 per child per annum has been provisioned for uniform. though there is provision for construction of girls’ toilet/disabled friendly toilet, there is no provision for maintenance cost for repairing non-functional toilets/urinals. Also component for addressing needs of children with disability budgeted inadequately that includes educational placement, aids and appliances, training to special resource teacher, support service, curricular access etc.

rte act not only envisaged universal access but also the quality education for which appointment of regular and trained teacher is a prerequisite. however, the revised norm set irrational pay scales for teachers categorizing them into regular and contract-teachers. Additional Contract teachers are being substituted regular teachers in both ps and ups as well as subject teachers for ups at the unit cost of rs.5000 per month per teacher. this affects the quality adversely.

Rajasthan is therefore justified as SSA is the biggest scheme under elementary education in india to provide universal access to school

2011-12 2012-13 2013-14 2014-15re Ae re Ae re Be

Bihar 6685.86 5935.39 10343.97 9285.28 11807.25 15351.75rajasthan 6897.13 6812.32 7419.32 7557.29 8956.54 10945.33All india 32027.15 31344.84 35732.67 35398.87 39601.98 42516.28

Table 1.2: outlays and Expenditure on Elementary Education in the two States and All India (Rs. in Crore)

year Bihar Rajasthan2011-12 9.19 10.102012-13 11.60 8.582013-14 11.41 8.902014-15 13.13 9.7

Table 1.1: Elementary Education as Percentage of total State Budget1

education that rte also envisages providing free and compulsory education to all children in 6-14 years age group.



Table 1.3: norms and Standards under RTE Act, 2009norms and standards as per RTE Act, 2009

number of teachers 30:1 (for class i-V), 35:1 (for class Vi-Viii)At least three subject teachers (for class Vi-Viii)

Building • 1 classroom per teacher• 1 office-cum-store for headmaster• Separate toilets• Drinking water• Kitchen for mid-day meal preparation• Playground• Boundary wall

minimum number of working days in an academic year 200 working days (for class i-V)220 working days (for class Vi-Viii)

minimum number of working hours per week for a teacher 45 teaching including preparation hoursteaching/learning equipment provided to each classlibrary provided to each schoolplay material, games, sports equipment provided to each class

1.2 SSA - In Alignment with rTE Act, 2009

Currently, SSA is implemented as India’s flagship programme for universalizing elementary education. its overall goals include universal access and retention, bridging of gender and social category gaps in elementary education, and enhancement in learning levels of children. ssA provides for a variety of interventions, including, inter alia, opening of new schools and alternate schooling facilities, construction of schools and additional classrooms, toilets and drinking water, provisioning for teachers, periodic teacher training and academic resource support, textbooks and support for learning achievement.

the right of children to Free and Compulsory education Act, 2009 came into force from 1 April 2010. government has revised the Framework of implementation for sarva shiksha Abhiyan (ssA) to correspond with the provisions of the rte Act, 2009 as also the fund sharing pattern between the Central and state governments to provide for a more favorable sharing ratio for the states. pursuant to the enactment of the right of Children to Free and Compulsory education Act, 2009 (rte Act, 2009), a Committee had been constituted under the chairpersonship of shri Anil Bordia, former education secretary, government

of india, to consider the issue of harmonizing the ssA vision, strategies and norms with the rte mandate. the Committee had interactions with state secretaries of education, representatives of teachers’ unions, voluntary agencies and civil society organisations to review the ssA strategies and with the provisions of the rte Act, 2009.

the Act listed key norms and standards that needed to be adhered to by all schools, failing which no school may be established (refer table 1.3). the rte Act, 2009 has important implications for the overall approach and implementation strategies of ssA and the government of india therefore envisaged to harmonize the ssA vision, strategies and norms with the rte mandate.

however, even after passing the deadline for compliance to the rte requirement of ssA infrastructure development / creation on 31 march 2013, one can easily notice that the progress envisaged have not been attained. it is now time to review how successful has been the implementation of this entitlement focusing on three main area viz., 1) progress made in terms of the infrastructure and physical output, 2) revision of ssA norms in alignment to the rte Act, 3) financing RTE Act through SSA - a comparison of Fund requirement vs. Actual Allocations.


48

2. PhySICAl STATuS OF SSA: COvErAgE ANd gAPSssA, at the national level has largely met the access gap at the primary school level; however there is an unfulfilled gap at the upper primary school level. This however does not reflect the regional disparities still prevailing in most of the states. 15 states/uts including Ap, Arunachal pradesh, d&n haveli, daman & diu, delhi, haryana, himachal pradesh, lakshadweep, madhya pradesh, maharashtra, manipur, mizoram, nagaland, rajasthan and tamil nadu reveal a declining trend in terms of setting up elementary schools and teacher adequacy. in terms of progress made in setting up primary schools, Chandigarh (8.33 per cent) himachal pradesh (with 11.25 per cent completion), West Bengal (59.25 per cent) are among the poorest performers. With regard to opening up upper primary schools, himachal pradesh (with 0 per cent completion of its targeted 20 schools), meghalaya (29.94 per cent), nagaland (34.56 per cent) and West Bengal (44.99 per cent) reveal the skewed regional progress.4

prevalence of untrained teacher, especially substituting regular teacher with untrained para teachers is another major concern hampering quality of education that rte Act, 2009 envisages to provide. About 49 per cent of government schools in india run with untrained or less skilled para teachers. Bihar, uttar pradesh, West Bengal, Jharkhand, Chhattisgarh, Andhra pradesh, odisha, madhya pradesh and Assam report a huge proportion of untrained teachers.

2.1. State’s Scenario: bihar and rajasthan at a glance

2.1.1 positive developments

After about 4 years of the rte Act, 2009 coming into force, positive developments are observed in almost all states including Bihar and rajasthan

in terms of improved schooling infrastructure, lowered dropout rates and increased enrolment due to the numerous incentives promised by the union government and different state governments. these incentives are free uniforms, textbooks, scholarships and other incentives such as bicycles to ride to schools. As per government’s records, there have been positive developments till the Fy 2012-13 in both the states mentioned as under :5

In Bihar

• 12490356 students of class i-Viii has been provided with textbooks in 2011-12 against target of 19933881 children

• 1290 ps upgraded to ups against target of 2300 ps

• 868 new ps constructed and started functioning against target of 2459

• library constructed for 12194 ps and 7668 ups

• 311 ps and 86 upgraded ups received tlm, building and toilet facilities constructed

• 258522 teachers received in-service training against target of 422337 teachers

In Rajasthan

• 1,411 primary schools have been sanctioned for construction.

• 1402 ps have been upgraded in ups.

• remaining sanction for ps = 289 and for ups 1864-1402=462 will be sanctioned before 31st march 2013.



• 20,000 vacancies are sanctioned to be filled up by pr dept. by 2013

• 17073 teachers are working in upgraded secondary school.

• 79989 Children were benefited by residential/non- residential special training

2.1.2 gaps in the school infrastructure and Amenities

however, despite improvements in infrastructure, gaps are still prevailing in most of the states, Bihar in particular. despite rajasthan has improved in terms of attaining the pupil-

teacher ratio and classroom-teacher ratio6 as mandated under the rte Act, 2009 Bihar is lagging far behind. pupil-teacher ratio in Bihar is still high with 53 pupils for one teacher against the norms set under rte Act at 30:1. in rajasthan, 31.3 per cent of ps is running with only one classroom.

Although school infrastructure on the whole has improved, required amenities are not provided in majority of the schools, and in many cases when they are provided, they are dysfunctional. For example, in case of Bihar, as per government’s records 28.49 per cent of school (all types) lack common toilet whereas, more than 33 per cent lack separate toilet for

Figure 2.2: Single Teacher and Single Classroom PS (Percentage Share)

Figure 2.1: Pupil – Teacher Ratio at PS and uPS

5953

63

26 29

55

2225

232827

31

0

10

20

30

40

50

60

70

80

2012-132011-132012-132011-12BIhAR

Single teacher PS (%)

RAJASThAn

Single classroom PS (%)

InDIA

0

5

10

15

20

25

30

35

11.7

4.7

30.2

4.4

11.89.0

INDIARAJASTHAN BIHAR

Primary level upper Primary


50

Figure 2.4: Situation of Availability of Toilets and Drinking in Rajasthan

Figure 2.3: Situation of Availability of Toilets and Drinking in Bihar

girls. the cause of concern therefore remains for the school attendance of girls. A majority of schools in both Bihar and rajasthan still lack basic infrastructure facilities in school, even after 4 years of passing the rte Act, 2009.

As detailed out by nuEPA7 ,

• 48152 government schools (67.1%) in Bihar and 40705 government schools in rajasthan (51.6%) are without playground

2011 2012

2011 2012

0

10

20

30

40

50

Drinking WaterGirls' ToiletCommon Toilet

47.77

33.08

6.97 6.53

29.6128.49

Percent School in Bihar without

Percent School in Rajasthan without

0

5

10

15

20

25

Drinking waterGirls' ToiletCommon Toilet

22.78 22.4 22.4

3.684.93 5.14



Figure 2.5: Situation of Availability of Toilets and Drinking in All India

• 35417 schools in Bihar and 21663 schools in rajasthan are without Boundary wall

• 33115 schools in Bihar (45.44%) and 45035 schools (57.1%) in rajasthan do not have library

• 14998 ps in Bihar (21%) and 15221 ps in rajasthan(19.3%) did not received teaching-learning materials

• 34883 schools in Bihar (48.6%) and 22375 schools in rajasthan (28.4%) lack Kitchen shed for mdm

Another cause of concern is the poor quality of teaching in school. one of the main reasons for this is prevalence of untrained teachers and para teachers, especially in Bihar. About 47 per cent of regular teacher and 46 per cent of para-teachers are being trained and placed in government schools.

poor quality teaching results in the poor learning outcomes among children. Aser8 found

that upon giving a task of reading (with reading sample of standard ii level text) to standard V children in rural india in 2012, 20 per cent children in Bihar and 19 per cent in rajasthan were not able to read. similarly, about 18 per cent children in Bihar and 27 per cent in rajasthan were not able to solve simple division problem given to assess their mathematical skill.

in sum, despite a substantial increase in allocation in elementary education schemes (as depict in Table 1.2, there has not been significant improvements in terms of outcomes measured through learning levels, teaching quality and infrastructure amenities in school. With the launch of ssA and subsequently bringing it in alignment with rte Act in 2010, there could have been much more improvement on these standards. Question therefore arises, whether the allocated resources got spent effectively to bring positive development at the ground level? Or whether the allocation was sufficient to bring about desired outcomes? or the actual reason is a combination of the two – inadequate allocation and inefficient spending?

2011 2012

Percent School in All India without

0

5

10

15

20

25

30

35

Drinking WaterGirls' ToiletCommon Toilet

27.84

14.72

5.55 5.13

18.86

32.93


52

3.Component – Wise Costing under SSA - FuNd rEquIrEmENT vS. ACTuAl AllOCATIONFund requirement has been calculated based on the financial memorandum provided under SSA or the recommendation by the working group report, mhrd, govt. of india after the rte act came in force. the physical data are collected from pAB minutes for 2013-14 for respective states of Bihar and rajasthan as well as data presented in publications by nuepA like Flash statistics and ‘Elementary education in India-Where do we stand’ for the year 2012-13.

3.1 Component wise Fund requirement vs. Actual Allocations for SSA in bihar

Calculating the unit cost with the actual physical requirement under each intervention, the fund requirement for each intervention as well as the actual fund allocation in Fy 2013-14 in Bihar has been derived as depicted in the table 3.1.

1. Actual allocations in 2013-14 for all components/interventions under ssA in Bihar are abysmally lower than the fund requirements to fulfill the gaps, as evident from the Table 3.1. if we go by the government’s norm and/or the recommendation of working group on elementary education for the 12th Five year plan, the total fund requirement to implement ssA as per its objectives is rs. 20699.10 crore in Bihar, against which only rs. 5645.97 crore has been allocated in Fy 2013-14. There is a shortfall of Rs. 15053.13 crore in Fy 2013-14.

2. Access: Fund requirement towards Access to school including component/intervention such as ‘Opening of new school’, ‘Residential school of special category children’, ‘Residential Hostel’, and special training of mainstreaming oosC’

calculated as rs. 543.98 crore, against which actual allocation in Fy 2013-14 stands at rs. 158.89 crore, leaving a gap of rs. 385.09 crore.

3. Retention: Fund requirement for retention as a whole that includes components such as ‘Free textbooks’, ‘Uniform to all girls, SCs/STc and BPL’ ‘Teaching Learning Equipment (TLE)’, ‘Furniture in existing government schools’ is calculated as rs. 1775.41 crore against which an actual allocation of rs. 703.89 crore in Fy 2013-14 has been made. there is a shortfall of rs. 1071.52 crore.

a. there was no allocation on teaching learning equipment (tle) in Fy 2013-14 against requirement of rs. 3 crore for 644 new schools which were to be opened and 342 ups which were to be upgraded in Bihar.

b. providing furniture for existing government schools as per the norm of rs. 500 per child for 137.45 lakh children in ps and rs. 750 per child for 50.84 lakh children in ups calculated as rs. 1068.53 crore. there was no allocation for this component in Fy 2013-14.

4. Enhancing quality: enhancing quality of education includes components such as ‘Teachers’ salary’, ‘Teacher’s training’, ‘Academic support to BRCs’ and ‘Academic support to CRCs’, which altogether needs financial resource of rs. 8033.70 crore. Actual allocation towards enhancing quality altogether is rs. 2554.76 crore in Fy 2013-14, leaving a gap of rs. 5478.94 crore.

a. Teacher Salaries: in Fy 2013-14, the total allocation towards teacher salaries was rs. 2394.85 in Bihar against the actual requirements



of rs. 7579.51 crore to cover all ps and ups teachers and hms in position. The shortfall in financing teacher’s salary in Bihar in FY 2013-14 amounts to Rs. 5184.66 crore.

b. teacher training: the state of Bihar has 1.25 lakh newly recruited teacher and 1.92 lakh untrained teachers to whom induction and job training has to be provided apart from regular in-service teacher training to 1.64 lakh teachers. total cost requirement for such training is calculated based on the norm stands at rs. 169.25 crore against which only rs. 77.36 crore has been allocated. There is a gap of Rs. 91.90 crore in Fy 2013-14 towards Teachers’ training component under SSA.

c. Academic supports to BRCs: includes salaries of BrC coordinators and support staff, maintenance grant, tlm and furniture grants, tA for meetings and contingency grant which altogether needs resource of rs. 180.77 crore for 537 blocks in Bihar against which only rs. 28.46 crore has been allocated in Fy 2013-14, leaving a gap of rs. 152.32 crore.

d. Academic supports to CRCs: includes salary of cluster coordinator, CrC grants, contingency grant, maintenance/tlm/Furniture grants for which fund requirement is calculated as rs. 104.17 crore against which rs. 54.10 crore is allocated in Fy 2013-14, leaving a gap of rs. 50.07 crore.

5.Bridging gender and social gaps: this is an important category under ssA including components like ‘Innovative activities for girls including CAL’, ‘ECCE’, ‘girls education’, ‘Innovation for SC/ST/Minority girls’, ‘Provisions for CWSN’ and ‘Training of community leaders’, which altogether requires a fund of rs. 148.77 crore against which an actual allocation of rs. 61.30 crore has been made in Fy 2013-14. there is a shortfall of rs. 87.48 crore for this category altogether.

a. provision for disabled children: requires a fund of Rs. 98.79 crore for 329297 CWSN identified in Bihar against which an amount of only rs. 39.06 crore has been allocated leaving a shortfall of rs. 59.73 crore.

b.innovative activities: Fund requirement for innovative activities is calculated as rs. 38 crore against fund requirement of rs. 10.25 crore leaving a gap of rs. 27.75 crore.

6. School Infrastructure: Comparing components/interventions under ssA, one can easily find out that infrastructure has been prioritized in Bihar like most of the states in india. however, calculating requirements based on the unit cost provided for each component under Civil Works, the fund allocation has to be rs.9658.10 crore whereas only rs. 1837.56 crore was allocated in Fy 2013-14. There is a shortfall of Rs.7820.54 crore in Bihar towards financing infrastructure under SSA.

a. Child friendly element is a sub - component under Civil Work which is to develop the entire school space as a resource for fun and learning activities using ideas of Building as learning Aid (BalA). however, there is no allocation towards child friendly element in Bihar in Fy 2013-14.

b. Boundary wall, Library, Electrification, Kitchen shed are some of the sub components that do not get any allocation in Fy 2013-14 despite huge physical requirement such as, 35417 schools without boundary wall, 33115 without a library and 68181 PS requiring electrification, as mentioned in Flash statistics 2012-13.

c. proposal for construction of Common toilet, girls toilet, hand pumps/drinking water units for the Fy 2013-14 were 1008, 4847 and 692 respectively which are much lesser than actual requirements. As per the Flash statistics 2012-13, there were 20762 schools


54

without common toilet, 24107 schools without separate girls’ toilet and 4759 schools without facility of a hand pump/bore well.

7. Management: this category includes management and mis district level, learning enhancement programme and community mobilization along with the state component of project management. the fund requirement altogether for this category is calculated as rs. 387.40 crore against which an actual allocation of rs. 219.05 was made in Fy 2013-14, leaving a gap of rs. 168.35 crore.



Tabl

e 3.

1: C

ompo

nent

Wis

e Fu

nd R

equi

rem

ent

as p

er F

inan

cial

nor

ms V

s. A

ctua

l Fun

d A

lloca

tion

un

der

SSA

- B

IhA

RSl

. no.

Com

pone

ntE

stim

ated

uni

t C

ost

as p

er

finan

cial

mem

oran

dum

P

hysi

cal

requ

irem

ent

as

on M

arch

201

3

Req

uire

d B

udge

tary

A

lloca

tion

(R

s. In

la

kh)

Act

ual F

und

allo

cati

on fo

r 20

13-1

4 (R

s. In

la

kh)*

1A

CC

ESS

1.1

ope

ning

of n

ew s

choo

lsn

A

00.

001.

2R

esid

enti

al S

choo

l of s

peci

fic c

ateg

ory

of c

hild

ren*

nA

494

.90.

001.

3R

esid

enti

al h

oste

l for

spe

cial

cat

egor

y ch

ildre

n*n

A3

83.6

159

.55

1.4

Spec

ial T

rain

ing

for

mai

nstr

eam

ing

of o

ut-o

f-Sch

ool C

hild

ren#

##

1.

4.1

Res

iden

tial

tra

inin

gr

s 20

,000

per

chi

ld/ a

nnum

2710

96 o

osC

***

5421

9.2

1338

2.21

1.4.

2n

on-r

esid

enti

al t

rain

ing

rs

6,00

0 pe

r ch

ild/a

nnum

0

2447

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btot

al -

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ial T

rain

ing

for

mai

nstr

eam

ing

oo

SC

54

219.

215

829.

39

(1)

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otal

– A

CC

ESS

5439

7.71

1588

8.94

2R

ET

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n

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Free

Tex

tboo

ks##

#

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1.1

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tex

tboo

ks t

o g

irls

/SC

/ST

in P

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pper

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ling

of r

s. 15

0/- p

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hild

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921.

952.

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tex

tboo

ks t

o g

irls

/SC

/ST

in u

PS

upp

er c

eilin

g of

rs.

250/

- per

chi

ld47

5371

0*11

884.

2811

884.

282.

1.3

Bra

ille

Boo

k in

PS

upp

er c

eilin

g of

rs.

150/

- per

chi

ld29

37*

4.41

4.41

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4B

raill

e B

ook

in u

PS

upp

er c

eilin

g of

rs.

250/

- per

chi

ld12

84*

3.21

3.21

Su

btot

al -

Free

Tex

tboo

ks

33

813.

8533

813.

843

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uni

form

to

All

gir

ls, S

Cs/

Sts,

BP

l ##

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s. 40

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lE)

###

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00 fo

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and

34

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ps t

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up

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299.

80.

00

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itur

e in

exi

stin

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r g

ovt.

PS

stud

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##

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1374

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6872

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5083

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3812

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8627

***

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cial

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282

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00

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lang

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s.12

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th97

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80.

00

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tudi

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00

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each

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58

4.1

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4.1.

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nt fo

r P

Srs

. 500

0 pe

r yea

r for

a ps

7308

1 ps

*36

54.0

536

54.0

54.

1.2

Scho

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for

uP

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s. 7,

000/

- pe

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ar fo

r a

ups

30

887

ups

*21

62.0

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62.0

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Subt

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- Sc

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58

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60

3.2 Component wise Fund requirement vs. Actual Allocations in rajasthan

Calculating the unit cost with the actual physical requirement under each intervention, the fund requirement for each intervention as well as the actual fund allocation in Fy 2013-14 in rajasthan has been derived as depicted in the table 3.2.

1.in case of rajasthan, the total fund required to fill up the present physical gaps under different component/intervention in rajasthan amounts to rs. 7191.10 crore against which rs. 3216.64 crore has been allocated in Fy 2013-14. there is a shortfall in allocation by rs. 3974.47 crore in Fy 2013-14 for ssA in rajasthan.

2. Access: Fund requirement towards access to school including components/interventions such as, ‘Opening of new school’, ‘Residential school for special category children’, ‘Residential hostel’, ‘Transport/escort facilities’ and ‘Special training for mainstreaming oosC’ is calculated as rs. 839.20 crore against which an amount of only rs. 19.38 crore is allocated in Fy 2013-14. there was a shortfall of rs. 819.82 crore for this category.

a. There are 410957 OOSC identified in rajasthan who had to be mainstreamed out of which only 47061 children has been covered under residential and non residential training with an amount of rs. 15.64 crore in Fy 2013-14.

3. Retention: in order to improve retention in school, components such as ‘free textbooks’, ‘uniform to all girls, SCs/STs and BPL’, ‘Teaching Learning Equipments (TLE)’, and ‘furniture to existing government school’ were started for which fund requirement is calculated as rs. 843.83 crore. Actual fund allocation in Fy 2013-14 for these components altogether was rs. 10.83 crore leaving a huge gap of rs. 833 crore.

a. there are 107.35 lakh girls, sCs and sts enrolled in elementary level in rajasthan to whom uniforms had to be provided at the rate of rs. 400 per child. Against the fund requirement of rs. 429.40 crore, there has been no allocation in Fy 2013-14.

b. there was a need for provision towards tle for 1411 new ps (to be opened) and 1402 ups to be upgraded in rajasthan that is calculated as rs. 9.83 crore. however, there was no allocation towards tle in Fy 2013-14.

c. Fund requirement to provide furniture for 47.42 lakh children in ps and 20.76 lakh children in ups at the cost of rs. 500 per children in ps and rs750 per child in ups is calculated as rs. 392.84 crore. however, there was no allocation in Fy 2013-14.

4. Enhancing quality: this category includes important components/interventions such as teachers’ salary, teachers training, academic support through BrCs and academic support through CrCs, which altogether requires an amount of rs. 4084.51 crore. An amount of rs. 2951.69 crore has been allocated in Fy 2013-14 leaving a gap of rs. 1132.82 crore.

a. Teacher’s Salary: there is gap in what pAB approved and what actually has been allocated towards teacher’s salaries in rajasthan. pAB approved to pay salaries to 7028 new primary and upper primary teachers as well as 113032 existing teachers and head teachers in rajasthan in Fy 2013-14, with a proposed allocation of rs. 3938.04 crore against which only an amount of rs. 2903.80 crore has been allocated actually leaving a gap of rs. 1034.23 crore.

b. Teacher training: in rajasthan, 34244 new recruits were to be provided the induction training, the non residential orientation at CrC level to 274528 teachers, in-service training to 86125 teachers and refresher residential training to 46688 head teachers for which a sum total of rs. 23.97 crore was required against which only rs.9.45 crore has been provided in Fy 2013-14.



there is a shortfall of rs. 14.52 crore towards teachers’ training in rajasthan in Fy 2013-14.

c. Academic support through BRCs: total fund requirements towards salaries of BrC resource persons, BrC grants for meeting, tlm/Furniture/maintenance grants and contingency funds calculated as per the norms stands at rs. 66.87 crore for 256 BrCs in rajasthan against which only rs. 31.68 crore was allocated in Fy 2013-14 leaving a shortfall of rs. 35.19 crore.

d. Academic support through CrCs: support to CrCs include salaries of CrC coordinator, CrC grants, Furniture/tlm and maintenance grants and contingency fund which altogether requires an amount of rs. 55.64 crore against actual allocation of only rs. 6.76 crore was made for 3074 CrCs in Fy 2013-14. therefore, there is a shortfall of rs. 48.88 crore in Fy 2013-14.

5. Bridging gender and social gaps: this category includes components such as ‘provision for disabled children’, ‘innovative activities’ and training of community leaders’ which altogether requires an amount of rs. 76.19 crore against which an actual allocation of rs. 19.26 crore has been made in Fy 2013-14.

a. There are 115972 CWSN identified in rajasthan requiring fund allocation of rs. 34.79 crore at the rate of rs. 3000 per child per year. Against this requirement, an amount of only rs.11.60 crore has been allocated leaving a gap of rs. 23.19 crore in Fy 2013-14.

b. innovative activities includes eCCe, girls education and innovation for sC/st/minority girls is an important component under ssA that shows a shortfall of rs. 28.13 crore between fund requirement and actual allocation in Fy 2013-14.

c. 279796 smC/pri leaders were to be trained at rs. 100 per day for 3 days requiring an amount of rs. 8.39 crore whereas training

programme arranged for only one day providing an amount of rs. 2.80 crore in Fy 2013-14 in rajasthan, leaving a gap of rs. 5.60 crore.

6. Maintenance grant: there are 107779 ps and ups in rajasthan for which fund requirement towards maintenance grant calculated as rs.80.83 crore at the rate of rs.7500 per school per year. however, there was no allocation towards providing maintenance grant in Fy 2013-14.

7. Research, evaluation, monitoring and supervision activities: 107779 ps and ups require an amount of rs. 16.17 crore towards rems activities at the rate of up to rs. 1500 per school per year. however, this fund is only for monitoring purpose with no separate allocation for research, evaluation and supervision on the part of the government which is very important. in rajasthan, an amount of rs.2.60 crore was allocated towards rems activities (allocation of rs. 60 per school at district level restricted to eligible activities of achievement surveys whereas at state level rs. 179 per school has been restricted to eligible activities of Achievement survey, contribution to sCpCr and dise. there was a gap of rs. 13.59 crore in Fy 2013-14.

8. School Infrastructure: Against a total requirement of Rs. 1039.10 crore to fill up gaps in infrastructure in schools, an amount of only rs. 53.58 crore has been provided. the shortfall in allocation towards Civil Works in rajasthan amounts to rs. 985.53 crore in the Fy 2013-14.

a. rajasthan experiences huge infrastructural gaps at the school level. despite the fact that 24142 schools in rajasthan lack common toilet, 5550 schools lack facilities of water/hand pumps, 21663 schools lacks boundary wall, 55872 ps lack electrification, 46247 schools lack provision of a library and 30577 schools lack a kitchen shed, there has been no allocation for all these components in Fy 2013-14.


62

b. pAB approved 3016 additional classrooms and 773 office-cum-store-cum head teachers’ room in FY 2013-14 posing a financial requirement of Rs. 120.64 crore and rs. 30.92 crore respectively, against which there has been no allocation for these two sub components in Fy 2013-14.

c. 462 new ups has been sanctioned as per government’s record in Fy 2013-14 that includes school building, toilets, hand pump, kitchen shed and boundary wall requiring fund allocation rs. 69.30 crore. however, nothing has been allocated for new ups in Fy2013-14.



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68

4. uNIT COST ANAlySIS OF SElECTEd uNITS uNdEr SSAthis section provides detailed costing for the school level components under ssA applicable for the sample districts of the present study. maintenance grant is one of the components at school level for which unit cost set by ssA as upto rs. 7500 per school per year.

However, Based on our field study and costing exercise, the grant comprise of i) White Washing, painting of doors and Windows and minor repair of walls for 8 classroom, 1 staffroom, 1 head master’s room and 1 veranda, ii) polish of Blackboards (20 sq. ft. each) in 8 classroom and 1 office room and iii) minor repair of furniture, doors windows etc in 8 classroom, 1 staff room, 1 hm room.

Table 4.1: Costing for School level Component based on Empirical Field Study

Component item unit Cost no. of units total Cost

maintenance and repair of school Buildings (ps and ups)

White Washing, Painting of Doors and Windows and Minor Repair of walls

rs. 5 / sq. ft. for four walls and ceiling inside and outside

4200 sq. ft. (8 Classrooms of 400 sq. ft. each, 300 sq. ft. for staff room, 200 sq. ft. for Headmaster-cum-Office room and 500 sq. ft. of verandah)

21000

Polish of Blackboards (20 sq. ft. each)

rs. 2 / sq. ft. 9 (For 8 classrooms and 1 headmaster cum Office room)

360

Minor repair of furniture and Minor Repair of Door and Windows - Wood and glass

rs. 500 per class per annum

10 (8 Classrooms, 1 staff room, and 1 headmaster-cum-office room)

5000

Total Cost per school per annum 26360

As per the unit cost derived from field study, depicted in the table 4.1, a total amount of rs. 26360 is to be allocated towards maintenance grant per school per year against the present norm of only rs 7500/school/year. Based on this cost of rs. 26360 per school per year, the financial requirement is Rs. 27405.96 crore for Bihar for 103968 ps & ups and rs. 28410.54 crore for rajasthan for 107779 ps & ups. Against this requirement the actual allocation towards maintenance and repair of school Buildings stands at only rs. 4698.18 crore for Bihar whereas there is no allocation for this component in rajasthan. this explains the dilapidated and shabby physical conditions of the government schools in Bihar and rajasthan.



5. FINANCINg OF SSA (rTE ACT, 2009)government of india envisages implementation of the entitlement through the national flagship programme SSA committing free and compulsory education to all children in 6-14 yeas age group. With regards to the financial resources, the central and the state governments have a concurrent responsibility for providing funds for carrying out the provisions of the rte Act, 2009. Besides being responsible for concurrently funding the implementation of the rte Act, 2009 the state government is ultimately responsible for providing funds for the implementation of the rte Act, 2009 such as preparing state rules under the Act, establishing neighbourhood schools, providing free and compulsory education to every child, ensuring their compulsory admission, attendance and completion of elementary education, ensuring that there is no discrimination against children from weaker sections or disadvantaged groups, providing infrastructure to schools, notifying a body that will prescribe the curriculum and evaluation, providing special training facility for children inducted in age appropriate grade, ensuring that education provided conforms to the norms specified in the Schedule, and training of teachers. state governments that do not have the capacity to provide these have already sought support from the central government.

the state governments had expressed their inability to bear the financial burden estimated for implementation of the Act and some state governments had asked the central government to bear the full financial responsibility of implementing the Act. the 13th Finance Commission has already allocated rs 24,068 crore over a five year period to the state government. An outlay of rs 2.31 lakh crore approved by the government for implementation of the combined rte-ssA programme over a period of five years from 2010-11 to 2014-15 as per the break up given in the table 5.1 below10:

the government acknowledges that adequate resources have not been provided to implement this critical legislation in the last three years of the 11th plan period. the 12th plan Working group report notes that, total government expenditure for the 11th plan period was rs. 70,870 crore (till August 2011). going by its own target of spending more than this amount in just the last two years of the 11th plan period (i.e. rs. 84,408 crore), there is clearly a gap in terms of commitment and reality.

the following section will focus of the allocation and spending patterns under ssA for the sample states of Bihar, rajasthan and all over india.

Table 5.1: Costs towards Implementation of RTE through SSA during 2010-11 to 2014-15 Rs. in crore

sl. no. item last two years of 11th plan First three years of 12th plan total

1 Child entitlements 28852 21535 37626

2 teacher related costs 38307 82584 120889

3 infrastructure 17544 23417 40959

4 school related costs 5351 5566 12918

5 research, evaluation and management 5540 9533 14973

6 totAl 84408 146825 231233

source: Working group report on elementary education and literacy, 12th Five year plan, 2012-2017, mhrd, govt. of india, october 2011


70

box 5.1: Financial estimations by NuEPA

Table 5.2: Approved Allocation, Releases and Expenditure under SSA in India11 (Rs. In lakh)

year Approved AWp&B

released expenditure percentage of expenditure to total Approved

percentage of expenditure to total released

All india

2010-2011 45675.97 20166.38 21038.19 46.1 104.3

2011-2012 61734.43 37241.81 31353.44 50.8 84.2

2012-2013 69903.3

http://ssa.nic.in/page_portletlinks?foldername=financial-management

5.1 Financial provisioning for SSA in All India

the AWp&B under ssA for all india is taken from the official website of SSA, ministry of hrd which is available in the website till year 2012-13. however, a comparison of data in

demand for grants under ministry of hrd, government of india, shows different allocation and expenditure figures for all the financial years. As per the data from demand for grants, outlays for ssA in india increases from rs. 21000 crore in Fy 2011-12 to rs. 27758 crore in Fy 2014-15.

• In 2007, prior to the RTE Act, 2009 came into force, NUEPA revised the financial estimation recommended for the draft bill for a seven year period from 2008-2009 to 2014-2015 which worked out to 2.29 lakh crores covering four years of 11th plan and three years of 12th plan

• NUEPA worked out financial estimates for the period, 2006-2012, in four alternative scenarios based on different assumptions regarding pupil-teacher ratio (ptr) and teacher salary as under:

- ptr = 35; teacher salary as per KVs scales: rs. 4,36,459 crore

- ptr = 35; teacher salary as per average state scales: rs. 3,93,307 crore

- ptr = 40; teacher salary as per KVs scales: rs. 3,46,299 crore

- ptr = 40; teacher salary as per average state scales: rs. 3,21,196 crore



box 5.2: why does the amount of allocation of particular financial year mentioned in the ddg not match with the amount mentioned in the AwP&b of the state?

this is mainly because of the substantial delay in the disbursal of approved money from Central to the state govt. almost every year. When the state receives money it disburses to the districts. At the district level, the district collector has to issue notification (especially in case of civil works, after notification the committee ask for the bids and this way the whole process takes long time and so the money is not spend during the year or even it is spent it is on something else other than for what the money has been actually released, depending on the priority at that point.

in the mean time the state body has to submit the account by 31st march. they submit the expenditure statement based on what has been disbursed to the districts and not the actual expenditures. districts do their internal auditing only after 31st march and submit the actual statement of Expenditure in September along with utilization certificates. This is why allocation mentioned in demand for grants generally do not match with the actual AWp&B for a particular years. CAg do their audit in march and give the statement of non-receipt of uCs for some of the components.

5.2 Financial provisioning for SSA in bihar

5.2.1 overall allocation for ssA in Bihar

Comparing planned allocation and expenditure at the union level, it can be noticed that half of the approved budget has not been spent in year 2010-11 and 2011-12. moreover, funds available are not the same as funds available. Also the data available in demand for grants differs from the Annual Work plan and Budget (AWpB) which is a summary document of the progress achieved against previous targets, activities

proposed in the current fiscal and funds required to undertake them. the trend in expenditure in Bihar for SSA is quite fluctuating declining from 53 percent in 2010-11 to 37 percent in 2011-12 then increasing to 51 percent. however, calculation of utilization figures is critical in case of ssA as there are chances of overreporting of expenditure due to the complicated nature of reporting expenses for the scheme. there is always a mismatch between the data mentioned in demand for grants under school education and literacy with that of AWp&B mentioned found from the spo, ssA because of the complicated nature of fund flowing.

year Approved AWp&B



Bihar

2010-2011 6360.29 3438.54 3351.36 52.7 97.5

2011-2012 10831.2 2842.1 4005.53 37.0 140.9

2012-2013 10349.5 5465.49 5229.29 50.5 95.7

source: Bihar education project Council, patna (bepssa.in)

Table 5.3: Approved Allocation, Releases and Expenditure under SSA in Bihar12 (Rs. In lakh)


72

Figure 5.1: Percentage Distribution of Interventions in Bihar, Fy 2013-14

5.2.2 Fund distribution across components in Bihar

state level expenditure in Bihar shows the imbalance in expenditure as of Fy 2013-14. 45.8 percent of total fund goes to salaries and 32.5 percent for civil works in Bihar leaving very little fund to spent on innovation, training and administrative activities like monitoring. despite such huge investment towards teachers’ salaries, pupil-teacher ratio remained quite high in state like Bihar. on the other hand, requirement for training remained significant in a situation where more than 50 percent of regular teacher and para-teachers placed in govt schools of Bihar are not professionally trained. only 1.6 percent of allocated fund in Bihar was for training in 2013-14. the non-wage components such as communication, transport, and equipment are equally important to keep the system functioning smoothly. if there is no or very less budget towards communication/telephone, transportation, stationary etc monitoring does not take place hampering effective implementation of the scheme.

An analysis of distribution of outlays across different categories in Bihar, as depicted in table 5.2.2 shows that enhancing quality of education has been given the maximum priority allocating about 45.3 per cent of funds towards the category ‘enhancing quality’ in which 42.4 per cent has been towards teachers’ salary in Fy 2013-14. however, important components responsible for enhancing quality of education in schools, like ‘support to BRCs’, ‘support to CRCs’, and ‘teacher’s training’ have been neglected allocating meagre amounts that is not even 3 per cent altogether of total outlays. the other important category is financing school infrastructure where rs. 1837.56 crore out of total outlays of rs. 5645.97 crore has been allocated in Fy 2013-14, which is nearly 33 per cent of total outlays.

Allocations for rems activities are provided only for monitoring which is given to sCpCr and therefore, there is no separate allocation for research, evaluation and supervision on the part of the government which are equally important. As low as rs. 538.3 lakh (0.1 per cent of total outlays) has been allocated in Fy 2013-14 towards rems activities that include only monitoring of programme.

Infratructure32.5

Innovation for OSC2.8

Distribution of Textbooks, uniforms

12.5

Administration4.1

Training1.6

Special programmes0.7

Teacher’s salary

45.8



Table 5.4: Different Category Wise Percentage of Actual outlays for SSA in Bihar (Rs. in lakh)

Category Components Actual outlaysFy 2013-14

% to Total outlay

Access

opening of new schools 0.0 0.0Residential School of specific category of children

0.0 0.0

residential hostel 59.6 0.0transport/escort facility 0.0 0.0special training for mainstreaming of out-of-school Children

15829.4 2.8

Sub Total: ACCESS 15888.9 2.8

retention

Free text Book 33813.8 6.0provision of 2 sets of uniform 36574.8 6.5teaching learning equipment (tle) 0.0 0.0

Sub Total: RETENTION 70388.7 12.5

enhancing Quality

teacher's salary 239484.6 42.4teacher's training 7735.6 1.4Academic support through BrCs 2846.1 0.5Academic support through CrCs 5409.7 1.0innovation 435.3 0.1library in school 0.0 0.0

Sub Total: ENHANCING QUALITY 255911.3 45.3

Annual grants

school grants 5816.1 1.0maintenance grant 4698.2 0.8research, evaluation, monitoring & supervision (rems)

538.3 0.1

Sub Total: ANNUAL GRANTS 11052.7 2.0

Bridging gender and social gaps

CWsn 3906.2 0.7innovations for girls education 589.6 0.1training of community leaders 1198.5 0.2

Sub Total: BRIDGING GENDER AND SOCIAL GAPS 5694.3 1.0

school infrastructure Civil works 183755.6 32.5

Sub Total: CIVIl WoRKS 183755.6 32.5

managementproject management cost 19654.6 3.5state components 2250.4 0.4

Sub Total: MANAGEMENT 21905.0 3.9

gRAnD ToTAl – SSA 564596.5 100.0


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5.2.3 Fund requirement vs. Actual Allocation in Bihar

1. Fund required to finance the different components/interventions altogether under ssA, as per our calculation stands at rs. 20699.10 crore per annum in Bihar. the calculation is based on the unit cost norms of government’s estimates and the physical data available in different official documents. Actual fund allocation for Fy 2013-14 in Bihar was rs. 56.45.37 crore. there is a shortfall of rs. 15053.13 crore.

2.table 5.5 shows the major component/intervention wise fund requirements in Bihar based on our calculation vis a vis the actual allocations on each component in Fy 2013-14, thereby focusing on the actual gaps prevailing in terms of provisioning.

a. total fund requirement towards Access to school that includes residential school/hostel for special category of children, opening of new school and special training for mainstreaming oosC is calculated as rs. 543.98 crore against which an actual allocation of rs. 158.89 crore has been made in Fy 2013-14. there is a shortfall of rs. 385.09 crore.

b. Another category retention in school shows a shortfall of resources by rs. 1071.52 crore which is mainly because of no allocation in teaching learning equipment (tle) and Furniture for existing government school. the fund requirement was of rs. 3 crore and rs. 1068.53 crore in these two components respectively.

c. there is a shortfall of rs. 5478.94 crore towards enhancing quality of education that

includes teacher’s salary, teacher’s training, support to BrCs and support to CrCs.

• teacher’s salary and teacher’s training are the two most important components under ssA for which allocations has to be made as per the actual requirement that is calculated based on physical gaps. however, in Bihar, the shortfall in financing teacher’s salary and teacher’s training in Fy 2013-14 is calculated as rs. 5184.66 crore and rs. 91.90 crore respectively.

• shortfall in allocation towards support through BrCs and support through CrCs in Bihar calculated as rs. 152.31 crore and rs. 50.07 crore respectively, in the Fy 2013-14.

d. Based on the unit cost provided for each component under Civil Works, the total fund requirement for school infrastructure is calculated as rs. 9658.10 crore whereas only rs. 1884.54 crore was allocated in 2013-14, thereby leaving a shortfall of rs.7820.54 crore in Bihar towards financing Infrastructure under SSA.

e. Allocations for ‘Bridging gender and social gaps’ shows shortfall of rs. 87.48 crore in Fy 2013-14 against the fund requirement.

• only rs. 39.06 crore has been provided towards provision for disabled children in Bihar against actual requirement of rs. 98.79 crore if government’s unit cost is adhered. provision for disabled children in Bihar experiences shortfall of rs. 59.73 in Fy 2013-14.

• innovations for girls, sCs/sts/minority girls experiences shortfall of rs. 27.75 crore in Fy 2013-14.



Table 5.5: Fund Requirement vs. Actual Allocation for SSA in Bihar

Figure 5.2: Requirement Vs. Allcation for SSA in Bihar (Rs. in Crore)

Major Interventions Fund requirement* Actual Allocation in Fy 2013-14

gaps (Rs. in crore)

Access 543.98 158.89 385.09retention 1775.41 703.89 1071.52enhancing quality 8033.7 2554.76 5478.94Annual grants 151.73 110.53 41.20Bridging gender & social gaps 148.77 61.3 87.47school infrastructure 9658.1 1837.56 7820.54management 387.4 219.05 168.35totAl 20699.09 5645.98 15053.11

20699.1

5645.97

0

5000

10000

15000

20000

25000

Actual Allocation in FY2013-14Fund requirement


76

5.2.4 Actual Allocation vs. spending in Bihar

section 3.2 describes the gap between the fund requirements and actual allocations in the Fy 2013-14. however, the cause of concern is not only the insufficient allocation for intervention that calls for increased spending to bring in positive development under the schemes, but whatever allocated did not spent. it must be pointed out the manner of fund released under ssA. union government transfers funds in two installments to state governments – once in April and then again in september. however, the second installment is released only after the state government has transferred its matching funds. so if there is delay in releasing state matching share, the 2nd installment gets delayed. delays in receipt of funds also mean a rush to spend money towards the end of the year which results in poor quality spending. Also irregularity of financial reporting impedes effective fund utilisation. poor capacity of financial management staff of record keeping or improper register maintenance sometimes resulted in delayed or improper submission of

uCs to support spending. this in turn resulted in delay in disbursing installments thus hampering effective implementation of the programme.

A detailed analysis of state level component/intervention wise allocation/expenditure under ssA, reveals that a chunk of total allocation is going towards paying salaries to teachers and financing on infrastructure amenities. Fund distribution on various interventions at districts and block levels follows the same pattern. however, expenditure in all the components is far below the actual allocations as depicted in table 5.2.3.

major components/interventions under ssA show huge under spending of already insufficient allocations. Components like ‘Teacher’s salary’, ‘civil works/infrastructure’, ‘out of school children’, ‘distribution of textbooks/uniforms’, ‘trainings’ experienced huge under spending in both the Fy 2011-12 and Fy 2012-13 (latest available data on expenditure), with average of 56.6 per cent, 66.4 per cent, 79.8 per cent, 39.8 per cent and 71.7 per cent respectively.

Figure 5.3: unspent in SSA in Bihar (In percentage), Average of 2011-12 and 2012-13

0

10

20

30

40

50

60

70

80

TrainingDistribution of Textbooks,Uniforms

Out of SchoolChildren

InfratructureTeacher's Salary

56.6

66.4

79.8

39.8

71.7



Table 5.6: Component Wise Allocation and Spending in Bihar13

sl no. Components

rs. in lakh

2011-12 2012-13 2013-14

Allocation expenditure Allocation expenditure Allocation

1 Teacher's Salary 327737.61 116080.12 397714.05 204628.82 239484.6

2 Teacher's grant 1757.48 1259.60 1766.57 1660.02

3 BRCs 6238.50 513.06 3407.36 521.00 2846.1

4 CRCs 4694.33 706.99 3285.31 1222.55 5409.7

5 Teacher's Training 10441.20 2360.44 13167.16 4473.40 7735.59

6 out of School Children 57446.77 8955.98 32439.06 8018.43 15829.39

7 Special Training 571.42 0.00 0.00 0.00 0

8 Free Textbooks 34476.34 19038.12 36156.41 35922.35 33813.84

92 set of uniforms to children studying in government schools

27293.46 3951.16 68691.36 51220.96 36574.85

10 Inclusive Education- Interventions for CWSn 9629.34 1317.57 9878.91 5054.65 3906.2

11 Total Civil Works 560145.03 122728.49 418091.88 189515.69 183755.6

12 Teaching learning Equipment 2030.32 262.50 1558.07 259.40 0

13 Maintenance grant 4239.73 2885.20 4350.13 3674.30 4698.18

14 School grant 5703.14 4280.52 5816.14 5400.60 5816.14

15 Research & Evaluation 1528.23 28.40 1039.68 294.99 303.41

16 Project Management Cost & MIS SPo 1624.63 560.59 1904.13 557.43 2250.43

17 REMS State 363.89 88.20 234.9218 Community Mobilisation 1579.04 393.20 2979.39 772.29 1158.04

19 learning Enhancement Programme 13511.81 9.09 12256.94 561.16 6110.2

20 Innovative Activity 3800.00 352.84 3800.00 1809.60 1024.9

21 Community Training 2723.77 142.56 4348.53 2114.69 1198.49

22 Management & MIS District 5883.99 1902.69 9141.34 3945.91 12386.34

23 Residential Schools/hostels for specific category of children 64.64 0.00 94.90 45.47 59.55

24 library in school 0.00 0.00 2694.67 1167.06 0

Total SSA 1083120.78 287729.14 1034945.86 522928.94 564596.5


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Table 5.7: Approved allocation, Releases and Expenditure under SSA in Rajasthan (Rs. In lakh)

Figure 5.4: Fund distribution-component wise in Rajasthan, Fy 2013-14

5.3 Financial Provisioning under SSA in rajasthan

5.3.1 overall allocation for ssA in rajasthan

Approved allocations have been almost halved in both the years for which data was available

year Approved AWp&B



rajasthan

2010-2011 3099.79 1941.24 1998.94 64.5 103.0

2011-2012 3675.47 2861.28 2657.94 72.3 92.9

2012-2013 3926.51 nA 3529.67 89.9 …

http://ssa.nic.in/page_portletlinks?foldername=financial-management

in rajasthan, depicted in table 5.7. however, the amount released in 2012-13 was not found from the secondary data available from the official website of ssA. the trend in expenditure has shown substantial increase over the years from 64.5 per cent of approved allocation in 2010-11 to 89.9 percent of approved allocation in 2012-13 being spent.

Infratructure3.6Administration

4.3Training

0.9

Distribution oftextbooks

0.3

Special Programme

0.6

Teacher’sSalary

0.6



5.3.2 Fund distribution across components in rajasthan

A detailed looks revealed that a significant amount of allocation towards civil works has been downsized from rs. 558.09 crore in 2012-13 to rs. 53.57 crore in 2013-14.

the state level component/intervention wise allocation/expenditure in rajasthan, as revealed from the table, that a chunk of total allocation is going towards paying salaries to teachers and towards civil work component. in 2013-14, the imbalance in fund distribution was prevalent where teacher salary accounted for 90.3 percent of total expenditure leaving very little fund to spent on innovation, training and administrative activities like monitoring. on the other hand, Civil Works received lesser unlike Bihar presented in previous section of the analysis. Also training component receives only 0.9 percent of total fund.

in rajasthan, enhancing quality of education gets maximum priority among other categories of ssA, in terms of actual allocation in Fy 2013-14, with rs. 2951.69 crore out of total outlays of rs. 3216.64 crore 91.3 percent) being allocated towards the category ‘Enhancing quality’. teacher’s salary takes up the maximum parts of this allocation which is rs. 2903.80 crore.


80

Table: 5.8: Different Category Wise Percentage of Actual outlays for SSA in Rajasthan (Rs. in lakh)

Category Components Actual outlaysFy 2013-14

% to Total outlay

Access

opening of new schools 0.0 0.0Residential School of specific category of children

200.8 0.1

residential hostel 158.7 0.0transport/escort facility 14.4 0.0special training for mainstreaming of out-of-school Children

1563.8 0.5

Sub Total: ACCESS 1937.8 0.6

retention

Free text Book 1082.6 0.3provision of 2 sets of uniform 0.0 0.0teaching learning equipment (tle) 0.0 0.0

Sub Total: RETENTION 1082.6 0.3

enhancing Quality

teacher's salary 290380.2 90.3teacher's training 944.9 0.3Academic support through BrCs 3167.8 1.0Academic support through CrCs 676.3 0.2innovation 0.0 0.0library in school 0.0 0.0

Sub Total: ENHANCING QUALITY 295169.2 91.8

Annual grants

school grants 6070.9 1.9maintenance grant 0.0 0.0research, evaluation, monitoring & supervision

257.6 0.1

Sub Total: ANNUAL GRANTS 6328.5 2.0

Bridging gender and social gaps

CWsn 1159.7 0.4innovations for girls education 486.9 0.2training of community leaders 279.8 0.1

Sub Total: BRIDGING GENDER AND SOCIAL GAPS 1926.4 0.6

school infrastructure Civil works 5357.1 1.7

Sub Total: CIVIl WoRKS 5357.1 1.7

managementproject management cost 8715.6 2.7state components 1146.5 0.4

Sub Total: MANAGEMENT 9862.1 3.1

gRAnD ToTAl – SSA 321663.5 100.0



5.3.3 Fund requirement vs. Actual Allocation for ssA in rajasthan

1. Fund requirement on different components /interventions of ssA has been calculated based on the government’s unit cost norm and the present physical gaps in rajasthan. total fund requirement for overall ssA in rajasthan calculated as rs. 7191.11 crore for Fy 2013-14, whereas, an amount of rs. 3216.64 crore has been allocated leaving a shortfall of rs. 3974.46 crore.

2. table 5.9 shows the major component/intervention wise fund requirements in rajasthan based on our calculation and the actual allocations on each component in Fy 2013-14, thereby focusing on the actual gaps prevailing in terms of provisioning. the state of rajasthan experiences huge gap between fund requirements per annum under different categories of ssA and the actual allocation on different components/interventions in Fy 2013-14. the calculation of fund requirement was based as per the present physical gaps infrastructure and other important components under ssA.

a. there is a shortfall of rs. 819.82 crore between fund requirements and actual allocation in FY 2013-14 towards ‘Access to Education’.

b. retention is one of the important categories requiring a substantial amount of allocation which includes free textbooks, uniforms to girls, sCs/sts, teaching-learning equipments and Furniture for existing government schools. however, there is no allocation in Fy 2013-14 towards uniform, tle and furniture for existing school against fund requirement of rs. 429.40 crore, rs. 9.83 crore and rs. 392.84 crore respectively.

c.enhancing quality is another important category requiring huge allocation of resources as it includes major components/interventions

such as, i) teachers salary, ii) teachers training, iii) Academic support through BrCs and iv) Academic support through CrCs. there is a huge shortfall of rs. 1132.82 crore in all these four components altogether in Fy 2013-14

Fund requirements towards ‘Academic support through BrCs’ (that includes salaries of BrC and CrC Coordinators, CWsn resource persons and support staff, tlm grants, maintenance grant, furniture grants, tA for meetings etc and contingency funds), calculated as per the norms stands at rs. 66.87 crore for 256 BrC in rajasthan. only rs. 31.67 crore was allocated in Fy 2013-14 for support to BrCs leaving a shortfall of rs. 35.19 crore in Fy 2013-14. similarly, gap between fund requirements and actual allocation in Fy 2013-14 towards ‘Academic support through CRCs’ including salary of Coordinator, maintenance, tlm, Furniture grants, tA for meetings and Contingency grants for 3074 CrCs in rajasthan is calculated as rs. 48.88 crore.

• there were 34244 new recruits to receive induction training, 274528 teachers to receive non-residential orientation, 86125 teachers to receive in-service training and 46688 head teacher to receive refreshing in-service training in rajasthan. there was a shortfall of rs. 14.52 crore towards teacher’s training in rajasthan in Fy 2013-14.

• As per the government’s sanction of fund to cover 7028 new teachers and 113032 existing regular/para teachers in rajasthan, there was a need of rs. 3938.04 crore against which only rs. 2903.80 crore has been actually allocated in Fy 2013-14. there is a shortfall of rs. 1034.23 crore in actual allocation towards teacher’s salary in Fy 2013-14 when compared to fund requirement.

d. ‘Bridging Gender and Social gap’ is the category under ssA that includes components/interventions like ‘Provisions for CWSN’, ‘Innovative activities


82

for girls’ and ‘Training of community leaders’ which altogether required fund of rs. 76.19 crore in 2013-14, against which a meagre amount of rs. 19.26 crore was allocated in Fy 2013-14 leaving a shortfall of rs. 56.92 crore.

e. Against a total requirement of rs. 1039.10 crore to fill up gaps in infrastructure in schools in rajasthan, only an amount of rs. 53.58 crore has been provided this year leaving a shortfall of rs. 985.53 crore in the Fy 2013-14.

f. the government’s proposed outlays for management including management and mis district, learning enhancement programme and Community mobilization, as approved by pAB in Fy 2013-14 amounts to rs. 91.35 crore, rs. 37.61 crore and rs. 5.59 crore respectively, against which only rs. 87.12 crore was allocated for all the three sub-components put together.

Figure 5.5: Requirement Vs. Allocation for SSA in Rajasthan (Rs. in Crore)

Table 5.9: Fund Requirement vs. Actual Allocation in Rajasthaninterventions Fund requirement

per annum Actual Allocation in Fy 2013-14rs. in crore

gaps (rs. in crore)

Access 839.2 19.38 819.82retention 843.83 10.83 833.00enhancing quality 4084.51 2951.69 1132.82Annual grants 157.71 63.29 94.42Bridging gender & social gaps

76.19 19.27 56.92

school infrastructure 1039.10 53.57 985.53management 150.57 98.62 33.80totAl 7191.11 3216.65 3974.46

7170.99

3216.64

0

1000

2000

3000

4000

5000

6000

7000

8000

Actual Allocation in FY2013-14

Fund requirement



5.3.4 Allocation vs. Actual expenditure on ssA in rajasthan

section 3.3 shows the gap between fund requirements on different components under ssA and the actual allocation in Fy 2013-14, but it is also important to analyse the utilization pattern. underutilization is another area of concern for most of the interventions in Rajasthan. On one hand, there is an insufficient allocation in the state, and on the other hand, whatever has been allocated is not spent fully in major components/interventions in Fy 2011-12 and Fy 2012-13, the latest available years for expenditure data.

Component/intervention wise Allocation and expenditure for Fy 2012-13 and Allocation for Fy 2013-14 has been depicted in table 5.10. data has been taken from the minutes of the pAB meetings in 2012-13 and 2013-14 from official website of SSA, whereas the same data

for Fy 2011-12 was not found as the pAB document for this year in official website of ssA is nonfunctional. Component wise budget allocation figures available for 2012-13 and 2013-14 shows a decline from rs.3926.51 crore to rs.3216.64 between these years.

depicted in Figure 5.6, more than 50 per cent of total allocated fund remained unspent in Fy 2012-13 in important components/interventions such as, ‘Infrastructure/civil works’, ‘community mobilization’ and ‘Special training to mainstream out of school children’. Components such as, ‘teachers’ training’, ‘community trainings’, ‘innovative activity’ and ‘inclusive education’ are equally important towards effective implementation of the programme that are showing underspending of available allocations with 29.6 per cent, 30 per cent, 35.9 per cent and 20 per cent of allocated funds being un-utilized respectively in the Fy 2013-14.

Figure 5.6: Percentage under expenditure on major components, Rajasthan, 2012-13

0 10 20 30 40 50 60

Teacher's Training

Special Training

Inclusive Education

Total Civil Works

Community Mobilisation

Innovative Activity

Community Training 30

35.9

55

57.72980039

20

52.24481212

29.54761279


84

Table 5.10: Allocation and Expenditure, Component wise in Rajasthan14

sl no. Components2012-13 2013-14

Allocation expenditure Allocation

1 teacher's salary 289343.13 289343.13 290380.2

2 teacher's grant 1341.14 1135.48 0

3 BrCs 3885.29 3685.22 3167.84

4 CrCs 768.5 768.5 676.28

5 teacher's training 2107.35 1484.68 944.86

6 out of school Children

7 special training for mainstreaming oosC 4123.18 1969.03 1563.83

8 Free textbooks 1575.08 1575.08 1082.57

9 2 set of uniforms to children studying in govt schools 0 0 010 inclusive education- interventions for CWsn 2343.6 1874.88 1159.72

11 total Civil Works 55809.36 23590.73 5357.07

12 teaching learning equipment 0 0 0

13 maintenance grant 4061.56 4061.56 0

14 school grant 6030.46 5289.12 6070.93

15 research & evaluation 1069.56 962.60 64.6716 management Cost & mis spo 1460.66 1314.59 1146.5017 rems state 278.09 250.28 192.9218 Community mobilisation 1563.01 703.36 019 learning enhancement programme 3273.46 2946.11 0

20 innovative Activity 3817.73 2445.12 486.85

21 Community training 662.0352 463.42464 279.796

22 management & mis district 7258.77 7252.17 8715.56423 transport/escort Facility 0 0 14.41524 Residential Schools for specific category of children 219.675 199.38345 200.82825 Residential Hostel for specific category of children 116.855 110.027 158.69026 library in school 1542.71 1542.71 0.000

Total outlay Approved (SSA)- RAJASThAn 392651.21 352967.20 321663.54



ENdNOTES1demand for grants, school education and literacy, govt of Bihar and govt of rajsthan; expenditure volume 2: ministry of hrd, govt of india

2major schemes elementary education in india includes : 1) strengthening of teachers training institutions, 2) mahila samakhya, 3) national Bal Bhawan, 4) national programme of mid day meals in schools, 5) ssA, 6) the scheme for providing Quality education in madrassas (spQem), 7) the scheme for infrastructure development in minority institutions, 8) support to educational development including teachers training & Adult education , 9) scheme for providing education to madrasas/minorities and 10) national investment Fund.

major schemes under elementary education in Bihar includes: 1)ssA, 2)mdm, 3)teacher’s salary, 4)govt ps, 5) non-govt ps, 6)scholarship, 7) primary teacher training school and 8)teacher training/.

major scheme under elementary education in rajasthan include: 1) govt ps,, 2) govt primary pathashala for sanskrit education, 3) non govt ps, 4) grant to local bodies ps, 5) education for disabled, 6) scholarship, 7)ssA, 8) examination, 9) elementary education under sCp and tAs

3web: http://mhrd.gov.in/rte

4how has the dice rolled: response to union Budget 2013-14, by CBgA

5pAB minutes 2013-14; web: http://ssa.nic.in/pab-doc/pab-minutes/copy_of_pab-minutes-2013-14, Annexure iii, for Bihar and rajasthan

6Data for pupil-teacher ration, single classrooms and single teacher PS are taken from ‘elementary education in india- progress towards uee- Flash statistics for the year 2012-13 by nuepA

7elementary education in india- progress towards uee- Flash statistics for the year 2012-13 by nuepA

8Annual state of education report (Aser) 2012

9Child friendly element is basically the concept of ‘BaLA’ (Building as a Learning Aid) that has been implemented in several states to maximize the educational, learning and fun value of a built space for children. By innovatively treating the existing or new school spaces (e.g. classroom, circulation spaces, outdoors, natural environment) and their constituent built elements (like the floor, wall, ceiling, door, windows, furniture, open ground) a range of learning situations and materials can be integrated such that they can actively be used as a learning resource. this resource could complement teaching process and supplement textbook information, much beyond providing wall space for posters and decoration.

10Working group report on elementary education and literacy, 12th Five year plan, 2012-2017, mhrd, govt. of india, october 2011


86

11SSA web portal: http://ssa.nic.in/page_portletlinks?foldername=financial-management

12Bihar education project Council, patna (bepssa.in)

13 http://ssa.nic.in/pab-doc/pab-minutes/copy_of_pab-minutes-2013-14

14 http://ssa.nic.in/pab-doc/pab-minutes/copy_of_pab-minutes-2013-14

integrated Child development services (iCds) scheme


INTEgrATEd ChIld dEvElOPmENT SErvICES (ICdS) SChEmE

BooK iii



88

89sarva shiksha Abhiyan, integrated Child development services scheme and integrated Child protection scheme

CONTENTS

1. Introduction..................................................................... 91

2. Physical Status of ICDS: coverage and gaps in the context of Bihar and Rajasthan and all India .............. 94

2.1 supplementary nutrition programme. .............................................952.2 infrastructure ..........................................................................................962.3 pre - school education .........................................................................972.4 human resource. ..................................................................................98

3. Component Wise costing under ICDS- Fund Requirement Vs. Actual Allocation ................................ 100

3.1 Fund requirement vs. Actual Allocation for iCds in Bihar. ..........1013.2 Fund requirement vs. Actual Allocation for iCds in rajasthan. .108

4. unit Cost Analysis of selected units under ICDS derived from Empirical Field Study: The case of Bihar & Rajasthan. ...................................... 114

4.1 pre- school education (pse) ...............................................................1144.2 supplementary nutrition programme ..............................................115

5. Extent and quality of spending for ICDS ...................... 1175.1 Financing in india. ...................................................................................1175.2 Financing iCds in Bihar ........................................................................1185.2.1 overall allocation on iCds in Bihar ..................................................................118

5.2.2 Fund requirement vs. Actual Allocation in Bihar. ...........................................118

5.2.3 Actual Allocation vs. spending in Bihar. .............................................................120

5.3 Financing iCds in rajasthan. .....................................................................1215.3.1 overall allocation on iCds in rajastha ............................................................121

5.3.2 Fund requirement vs. Actual Allocation in rajasthan. ...................................121

5.3.3 Actual Allocation vs. spending in rajasthan......................................................123


90

table

table 1.1: Basic health indicators in Bihar, rajasthan and All india .........................................91

table 2.1: number of iCds projects and AWCs as on march 2013 .....................................94

Table 2.2: Status of ICDS beneficiaries, as on March 2013 ......................................................94

table 3.1: Fund requirements vs. actual allocations under iCds in Bihar ............................103

table 3.2: Fund requirement Vs Actual Allocation under iCds in rajasthan .......................109

table 4.1: item wise cost analysis for supplementary nutrition programme (snp) .........114

table 4.2: item wise cost analysis for pre-school education (pse) ........................................116

table 5.1: Allocations and spending under iCds in india .........................................................117

table 5.2.3: under-utilisation/overutilization of allocated fund, Bihar ...................................120

table 5.3.3: underutilisation/overutilization of allocated fund in rajasthan .......................123

Figure

Figure 2.1: Vacancies of lady supervisors ....................................................................................99

Figure 2.2 Vacancies of Anganwadi Workers ...............................................................................99

Figure 5.1: Actual Allocation in iCds (Be) over the years in Bihar........................................118

Figure 5.2: Fund requirement vs. actual allocation in Bihar ....................................................120

Figure 5.3: iCds allocation over the year in rajasthan ............................................................121

Figure 5.4: Fund requirement vs. actual allocation in rajasthan ............................................123

Figure 5.5: Fund allocation kept unspent, an average of 2011-12 & 2012-13 ......................124

Box

Box 1.1: plan targets set by the 12th Five year plan ...................................................................92



1. INTrOduCTION india is home to 158.7 million children in the age group of 0-6 years. With nearly 20 per cent of the 0-4 years’ child population of the world, india is home to the largest number of children in the world1. despite growth in literacy and economy, there had been very less understanding of holistic development of children in India, which were reflected in its policies and programmes. now even as the policies and programmes are becoming more reflective of this understanding of holistic development, their on-ground implementation still seems far removed from this understanding as could been seen while analyzing the investment patterns on the various components of the important child development programmes.

Bihar and rajasthan have a huge population of 185.82 lakh and 105.5 lakh respectively of children under the age of six years. A large portion of children under the age of 6 years in india remain undernourished with their growth and development impeded irrevocably, over the lifetime. strong Constitutional, policy, plan and programme commitments including a range of

national programmes notwithstanding, improved early child development outcomes remain a real challenge.

in terms of programme/scheme integrated Child development services (iCds) scheme is the most significant intervention by the Government of india to respond to the nutrition and pre-school education needs of the children under the age of six years. launched on 2nd october 1975, today, iCds scheme represents one of the world’s largest and most unique programmes for early childhood development. iCds is the foremost symbol of india’s commitment to her children – india’s response to the challenge of providing pre-school education on one hand and breaking the vicious cycle of malnutrition, morbidity, reduced learning capacity and mortality, on the other.

since inception of iCds in 1975, the programme has matured and expanded and covers over 16 million expectant and nursing mothers and over 75 million children under the age of six in india. though it is operational in almost every block, barely one-fourth of

source indicators Bihar rajasthan india

srs 2011 neo-natal death rate 29 37 31

srs 2011 infant mortality rate 44 52 44

srs 2011 Child mortality (under 5yrs) 59 64 55

nFhs-iii Full Vaccination 32.8 26.5 43.5

nFhs-iii under nutrition (under 5 yrs) 56 44 42.5

WCd (march 2011)* severe malnutrition (-3sd) 25.94 0.33 3.33

nFhs-iii Breast feeding within one hour of Birth 4.0 13.3 23.4

nFhs-iii Anemia among children (under the age of 5 years) 78 70 0

government of india maternal mortality rate* 32 25 0

source: data obtained from Annual health survey 2011 - 12 Fact sheet by goihttp://www.censusindia.gov.in/vital_statistics/AhsBulletins/Ahs_Factsheets_2011_12.html*data on malnourished children obtained from performance Audit of iCds scheme, WCd, goi,

Table 1.1: Basic health indicators in Bihar, Rajasthan and All India2


92

box 1.1: Plan Targets set by the 12th Five year Plan4

goals for women and children

• reduce imr to 25 by 2017

• reduce mmr to 1 per 1000 live births by 2017

• improve Child sex ratio (0–6 years) to 950 from 914

• reduce total Fertility rate to 2.1 by 2017

• reduce under-nutrition among children aged 0–3 years to half of the nFhs-3 levels, i.e.to 27 percent

• prevention and reduction of anaemia among women aged 15-49 years to 28 percent

goals to universalize ICDS

• ensure 90% AWWs in the anganwadi centers receives job/refresher training separately by 2017

• ensure at least 70% of AWCs that having regular health check-ups

• ensure all AWCs are equipped with adequate indoor and outdoor space; Adult & baby weighing scales; Who new growth charts; pse kits and graded curriculum; medicine kits; revised mis registers etc. by 2017

• ensure 70% of AWCs that having regular health check-ups

• ensure 70% of AWWs reporting at least 15 home visits in a month

• ensure 70% of AWCs conducting pse and eCCe activities for atleast 21 days in a month

all children under six are covered under the very important supplementary nutrition component of the programme. on the other hand, the indicators that the iCds attempts to improve (e.g. nutritional outcomes of young children) remain poor. the main objectives of the programme are to improve the health, nutrition and development of children. it offers health, nutrition and hygiene education to mothers, non-formal pre-school education to children aged 3 to 6, supplementary feeding for all children and pregnant and nursing mothers, growth monitoring and promotion services, and links to primary healthcare services such as immunization and vitamin A supplementation. different services3 under iCds are provided through ‘Anganwadi Centres’.

ministry of Women and Child development evolved a comprehensive proposal on iCds strengthening and restructuring with special focus on pregnant and lactating mothers and children below three years of age. iCds restructuring aimed to achieve three outcomes that could be monitored by the end of the twelfth Five year plan, i.e. 2017. these are –

• prevent and reduce young child under-nutrition (% underweight children 0-3 years) by 10 percentage points.

• enhance early development and learning outcomes in all children 0-6 years of age.



• improve care and nutrition of girls and women, and reduce anaemia prevalence in young children, girls and women by one fifth.

these outcomes would also contribute to reduction in imr and mmr, incidence of low birth weight in convergence with health and improved care and nutrition of adolescent girls in convergence with the rajiv gandhi scheme for empowerment of Adolescent girls and the national rural health mission.

iCds is today the world’s largest community based outreach programme for early child development, reaching out to over 7.5 crore young children below 6 years of age (around half of the total of 15.88 crore), around 1.67 crore pregnant and breastfeeding mothers through over 7000 project nationwide and 13 lakh Anganwadi centres across the country. over 25 lakh Anganwadi Workers and Anganwadi helpers (community based local women child care workers/helpers) constitute the core of these services and have the potential to be prime movers for social change – along with AshAs, Anms, teachers and women members of panchayati raj institutions.

iCds is the only scheme in india which addresses the nutritional needs of children in the age group 0-6 years, which comprises of 18 per cent of the total population in Bihar and 15 per cent of total population in rajasthan according to Census 2011.


94

2. PhySICAl STATuS OF ICdS: COvErAgE ANd gAPS5

Stateno. of ICDS Projects no. of AWCs

sanctioned operational sanctioned operational reporting

Bihar 544 544 91968 91677 80211

rajasthan 304 304 61119 61100 60319

All india 7075 7005 1373349 1338732 1312347

source: http://wcd.nic.in/icdsimg/Qpr0313-for-website-2-8-2013.pdf

State

Beneficiaries of SNP (in lakh) Beneficiaries for pre-school education

Children of age 6 months-6

years

expectant & lactating mothers

total Beneficiaries

of snp

Boys(3-6 years)

girls (3-6 years)

total(3-6 years)

Bihar 35.08 7.10 42.18 9.81 9.56 19.37

rajasthan 29.39 9.24 38.63 5.61 5.53 11.14

All india 774.04 182.08 956.12 179.94 173.35 353.29

source: http://wcd.nic.in/icdsimg/Qpr0313-for-website-2-8-2013.pdf

Table 2.1: number of ICDS Projects and AWCs as on March 2013

Table 2.2: Status of ICDS Beneficiaries, as on March 2013

The performance of ICDS in the field is not complying with its objectives of reaching the beneficiaries with adequacy. In this section the overall physical status of the scheme in Bihar, rajasthan as well as All india has been presented. Its gives the facts and figures on access and coverage under the scheme for the two selected states for the study, Bihar and rajasthan, and All india. it is not a comparison of the performance of one state with another in terms of physical achievements.

the programme reaches out to over 35 lakh children in age group of 0 to 6 years in Bihar and 30 lakh children in the same age group in rajasthan. 19 lakh children in Bihar and 11 lakh children in rajasthan in the age group of 3 to 6 years availed pre-school education. however, despite such huge number of centres that are operational, the indicators that iCds attempts to improve remain poor, as is evident from the basic health indicators.



2.1. Supplementary Nutrition Programme

In Bihar

- total child population (0-6 years): 73.34 lakh

- total children covered under snp: 35.08 lakh

- % children covered: 47.8%

In Bihar

- total no of p&l mothers: 14.67 lakh

- total p&l mothers covered under snp: 7.10 lakh

- % P&l mothers covered: 48.4%

In Rajasthan




In Rajasthan

- total no of p&l mothers: 9.78 lakh


- % P&l mothers covered: 94.5%

In India




In India



- % children covered: 85%

total child population under the age of 6 years who are to be provided with supplementary nutrition can be calculated based on the assumption that one AWC serves a maximum of 80 children and there are 91677 functional AWCs in Bihar, 61100 functional AWCs in

rajasthan and 1338732 functional AWCs in All india. the actual coverage is much less in both the states.

number of p&l mothers to be covered under supplementary nutrition progarmmes calculated based on the assumption that one AWC serves 16 p&l mothers. therefore, the gap between required and actual coverage are as under:


96

In India

- no. of population (Census 2011): 12101.93 lakh

- required no. of AWC: 1512742

- sanctioned AWC: 1374935 (as of december 2013)

- Functional AWC: 1339998 (as of december 2013)

- gap between required & sanctioned: 137807 (9.1%)

- gap between required & functional: 172744 (11.4%)

2.2. Infrastructure

As per government’s norm, there has to be one Anganwadi centre per 400-800 population. therefore, considering the maximum population of 800 for the provision of one Anganwadi

Centre, we could calculate that there is a huge requirement of AWC in both the state against the actual number functioning, despite clear order of sC to universalize the scheme. Bihar is in need of 37,787 centers whereas there is still a gap of 24,657 AWCs in rajasthan to cover targeted population, as envisaged in the scheme.

In Bihar







In Rajasthan









In Bihar

- no. of Anganwadi Centers functioning: 91677

- no. of AWC providing pse: 39331

- Total no. of beneficiaries for PSE (3-6 yrs): 19.37 lakh

In Rajasthan




In India




2.3 Pre-School Education

Bihar is lagging far behind in providing pre-school education (pse) in AWCs. out of 91677 centers sanctioned in Bihar only 39,331 are

imparting pre-school education to about 19 lakh children. only 42 per cent of the functional AWCs provide pse in Bihar. in rajasthan approximately 96 per cent of the functional AWCs provide pse.


98

2.4 human resource

in iCds scheme, Child development project Officer (CDPO) is a key person to ensure the proper implementation of iCds services. This person is a bridge between field ICDS functionaries and the policy makers. on the other hand, supervisor is the closest capable officer who visits the Anganwadi Centres for monitoring and suprevision. supervision includes monitoring the functioning, quality of services, proper growth monitoring processes, immunization and pre-school education program are being implemented with spirit. this has to be ensured by supervisors by making 2 visits every month to each Anganwadi center and by giving the technical inputs. AWW who are assigned responsibility of operating Anganwadi centers are not also provided to all the AWCs.

huge number of posts of supervisors are lying vacant, who are in in-charge of monitoring the functioning, quality of services, proper growth monitoring processes, immunization etc.

the main impediment towards smooth implementation of iCds has been vacant posts of Cdpo, supervisors and Anganwadi workers in both the sample states.

in Bihar, 8 posts of Cdpo and 1793 posts of supervisors are lying vacant. Cdpos are burdened with one Cdpo in charge of more than 170 project and one supervisor 53 centers to look after in Bihar. As of march 2013, 11 percent of posts of AWW in Bihar are still lying vacant.

in rajasthan, out of 443 posts of Cdpo sanctioned, only 218 are actually posted resulting in an average 280 AWC per Cdpo in the state. presently, 225 posts of Cdpo and 967 posts of supervisors are lying vacant in rajasthan. As a result Cdpos and supervisors are burdened in rajasthan as well with one Cdpo in charge of more than 280 projects and one supervisor to look after 40 centers in rajasthan making it impossible to visit AWCs on regular basis, monitoring and providing technical assistance. As of march 2013, 5.3 percent positions of AWWs in rajasthan are still vacant.

In Bihar

- no. of operational Anganwadi Centers: 91677

- no. of Cdpo sanctioned: 544

- no of Cdpo posted: 536

- Average AWC per CDPo posted: 171

- no. of supervisor sanctioned: 3513

- no. of supervisor posted: 1720

- Average AWC per Supervisor posted: 53

In Rajasthan







- Average AWC per supervisor posted: 40



In India







- Average AWC per supervisor posted: 39

in india, the overall situation is poor as well. 3051 posts of Cdpos and 19464 posts of supervisors are still vacant keeping them overburdened with one Cdpo in charge of 224 AWCs and one supervisor to look after 39

AWCs at a time. As a result, if the supervisor visits at least one AWC once in every month, then too she will not be able to cover all the AWCs in one month.

Figure 2.1: Vacancy of lady Supervisors

Figure 2.2: Vacancy of Anganwadi Workers

35.97582389

38.70765022

38.72647177

26.07128554

51.03899801

86.36493026

0 20 40 60 80 100

Bihar

Rajasthan

All India

Percent vacancy in post of Supervisor as of March 2013

Percent vacancy in post of Supervisor as of March 2012

Percent vacancy in post of AWW as of March 2013

Percent vacancy in post of AWW as of March 2012

0 3 6 9 12 15

Bihar

Rajsasthan

All India

7.29690705

9.323849946

5.27168311

6.127390828

11.18976166

12.78379436


100

3.Component – Wise Costing under ICdS - FuNd rEquIrEmENT vS. ACTuAl AllOCATIONperformance of Bihar, rajasthan and All india on the indicators that iCds is supposed to improve through its services is poor, and there are huge gaps in the coverage of the different components of iCds.

in this section a detailed component – wise costing exercise has been presented to find out the actual fund requirements to implement the iCds is the two states chosen for this study – Bihar and rajasthan.

the costing has been developed on the basis of revised financial norms/unit costs provided by the ministry of women and Child development, government of india in the publication iCds mission-the Broad Framework for implementation, which is the outcome of restructuring of iCds.

the proposal to strengthen and restructure the iCds scheme through series of programmatic, management and institutional reforms, changes in norms, including putting iCds in a mission mode has been approved by the government of india for continued implementation of the iCds scheme in the 12th Five year plan and implementation of restructured and strengthened iCds scheme in mission mode inter-alia consisting of the following provisions within an overall budget allocation of rs. 1,23,580 crore as government of india share. provision for additional funding from other sources and convergence with other programmes/schemes including mahatama gandhi national rural employment guarantee Act (mnregA) will also be pursued.

during the 12th Five year plan period and under the strengthened and restructured iCds scheme

programmatic, management and institutional reforms will be carried out which inter-alia include repositioning the AWC as a “vibrant eCd centre” to become the first village outpost for health, nutrition and early learning – minimum of six hours, focus on under-3s, care and nutrition counseling particularly for mothers of under-3s, identification and management of severe and moderate underweight through community based interventions sneha shivirs, decentralized planning and management, flexible architecture – flexibility of States in implementation for innovations, strengthening governance 0 including pris, partnerships with civil society, introducing Apip and mous with states/uts etc..

iCds will be implemented in mission mode with national mission directorate and national mission resource Centre to become operational from the first year of the 12th Five year plan as per the Broad Framework for implementation.

restructured and strengthened iCds will be rolled out in three years as per the following details:

(a) In 200 high burden districts in the first year (2012-13);

(b) in additional 200 districts in second year (2013-14) (i.e. w.e.f. 1.4.2013) including districts from special category states and ner.

(c) in remaining districts in third year (2014-15) (i.e. w.e.f. 1.4.2014)

the revised norms for snp will follow the phasing of the programme mentioned above. the revised norms for other components for which



the financial norms have been revised will be followed from the date of issuance of the order no. 1-8/2012-Cd-i, i.e., 26 december 2012.

thus from Financial year 2014-15 these norms are applicable for all the districts.

This exercise gives a clear picture of financial requirement for the proper implementation of iCds to meet its objectives. on this basis a robust demand can be generated for financial allocation for iCds, in Bihar and rajasthan.

3.1.Fund requirement vs. Actual Allocation for ICdS in bihar1. According to the figures from Demand for grants, allocations for iCds as a whole (Budget estimates) in Bihar for the Fy 2012-13, Fy2013-14 and Fy2014-15 amounts to rs. 1899.66 crore, rs. 1959.89 crore and rs. 2253.45 crore respectively, as depicted in the table above.

2. ICDS as a whole: taking into account all the component/interventions under iCds in Bihar, to cover all the existing physical gaps as well as cover the beneficiaries under universalisation of ICDS, total fund requirements as calculated in the table above for three years of our study are as under:

a. Against fund requirement of Rs. 3464.78 crore, an amount of Rs. 1899.66 crore has been provided for iCds as a whole (budget estimates) in Fy 2012-13 leaving a gap of Rs. 1667.85 crore (47%).

b. Against fund requirement of Rs. 3758.68 crore, an amount of Rs. 1959.89 crore has been provided for iCds as a whole (budget estimates) in Fy 2013-14 leaving a gap of Rs. 1798.79 crore (48%).

c. Fund requirement under iCds as a whole for Fy 2014-15 stands at Rs. 4032.13 crore, whereas, only an amount of Rs. 2253.45 crore has been provided for iCds as a whole in the

present Fy 2014-15, in Bihar leaving a gap of Rs. 1778.68 crore. thus to bridge the gap between requirement and allocation, the allocation will need to be increased by 44 per cent.

3. Supplementary nutrition programme: supplementary nutrition programme is the most important among other components under iCds requiring huge allocations to cover all beneficiaries for universalisation of ICDS. Total number of beneficiaries under the scheme in Bihar is as follows

a. 70.38 lakh children in 2012-13 and 73.34 lakh children every year in the age group of 6-72 months for next two years, i.e. 2013-14 and 2014-15 (based on the calculation that one AWCs serves maximum 80 children and there were 82819 AWC in 2012-13 and 91677 AWCs in 2013-14 and 2014-15 in Bihar);

b. 17.19 lakh severely malnourished children in the age group of 6-72 months in 2012-13 and 19.02 lakh children every year in next two years, i.e. 2013-14 and 2014-15 (based on calculation that 25.94% of 70.38 lakh children in 2012-13 and 25.94% of 73.34 lakh children in 2013-14 and 2014-15); and

c. 13.25 lakh pregnant women & lactating mothers in 2012-13 and 14.67 lakh every year in 2013-14 and 2014-15 (based on the calculation that one AWCs serves maximum of 16 women and there were 82819 AWC in 2012-13 and 91677 AWCs in 2013-14 and 2014-15 in Bihar).

total budgetary requirement to cover these beneficiaries for the FY 2012-13, FY 2013-14 and Fy 2014-15 is calculated as: rs. 1397.77 crore, rs. 1520.61 crore and rs. 1799.41 crore respectively. The first two year’s fund requirement calculations are in accordance with new norms for snp for 19 high Burden districts as well as the old norms for snp continued for the remaining 19 districts in Bihar. however, fund requirement for Fy 2014-15 has been in accordance with the new norms


102

that are applicable for all 38 districts in Bihar from the Fy 2014-15.

4. Construction of new AWCs: out of 91677 AWCs in Bihar, only 31404 are functioning in government’s own building leaving the remaining 60273 AWCs to run in rented building for which buildings need to be constructed. government of india has targeted construction of 2 lakh AWCs in 12th Five year plan from iCds funds in all over india. For the remaining AWCs in all india running in rented building, the planning Commission has to issue directives to leverage funds from other sources like BrgF, msdp, mgnregA, ACA, 13th Finance Commission and other similar schemes. Based on our calculation, the total fund requirement in Bihar, irrespective of the source of fund, for the 60273 AWCs stands at rs. 2712.29 crore in accordance with the norm for construction of rs. 4.5 lakh per AWC building for all states other than north eastern region states.



Tabl

e 3.

1: F

und

requ

irem

ents

vs.

actu

al a

lloca

tion

s un

der

ICD

S in

Bih

arSl

no

Com

pone

ntTa

rget

Rev

ised

nor

ms

in 2

012

(per

be

nefic

iary

per

day

)P

hysi

cal r

equi

rem

ent

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

2-13

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

3-14

Req

uire

d bu

dget

ary

allo

cati

on

in F

y

2014

-15

(Rs.

In la

kh)

Bih

ar1

supp

lem

enta

ry

nut

ritio

n pr

ogra

mm

e

Chi

ldre

n (6

-72

mon

ths)

rs.

6.00

/chi

ld/d

ay fo

r 19

hB

dist

; rs.

4.00

/chi

ld/d

ay fo

r 19

re

mai

ning

dis

t

70.3

8 la

kh (

2012

-13)

; 73.

34

lakh

(20

13-1

4)*

7426

5.71

8056

3.53

9777

0.22

seve

rely

und

erw

eigh

t ch

ildre

n (6

-72

mon

ths)

rs.

9.00

/chi

ld/d

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r 19

hB

dist

; rs.

6.00

/chi

ld/d

ay fo

r 19

re

mai

ning

dis

t

17.1

9 la

kh (

2012

-13)

; 19.

02

lakh

(20

13-1

4)#

4147

9.99

4534

0.24

5136

6.99

preg

nant

wom

en &

lac

tatin

g m

othe

rsr

s. 7.

00/w

oman

/day

for

19 h

B di

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s. 5.

00/w

oman

/day

for

19

rem

aini

ng d

ist

13.2

5 la

kh (

2012

-13)

; 14

.67

lakh

(20

13-1

4)*

2403

0.87

2615

6.78

3080

3.47

2pr

e-sc

hool

ed

ucat

ion

no.

of 3

-6 y

rs c

hild

ren

rs.

3000

per

kit

per A

WC

per

ye

arAW

C in

201

2-13

: 828

19;

AWC

in 2

013-

14: 9

1677

2484

.57

2750

2750

3m

edic

ine

kit

AWC

rs.

1000

per

AW

C p

er y

ear

AWC

in 2

012-

13: 8

2819

; AW

C in

201

3-14

: 916

7782

8.19

917

917

4m

onito

ring

ev

alua

tion

(pri

ntin

g of

var

ious

rec

ord,

re

gist

ers,

mon

thly

m

obile

rec

harg

e fo

r AW

W)

r

s. 10

00 p

er o

pera

tiona

l AW

C/m

ini A

WC

;

rs.

50 p

er A

WW

for

iCt

AWC

and

AW

W in

201

2-13

: 82

819;

A

WC

and

AW

W in

20

13-1

4:91

677

828.

1996

2.61

962.

61

5tr

aini

ng C

ompo

nent

Job

trai

ning

of C

dpo

/AC

dpo

rs.

500/

day/

trai

nee;

32

days

no

of C

dpo

:544

87.0

487

.04

87.0

4in

duct

ion

trai

ning

of C

dpo

/A

Cd

por

s. 50

0/da

y/tr

aine

e; 7

day

s19

.04

19.0

419

.04

refr

eshe

r tr

aini

ng o

f Cd

po/

AC

dpo

rs.

300/

day/

trai

nee;

7 d

ays

11.4

211

.42

11.4

2

Job

trai

ning

of s

uper

viso

rsr

s. 25

0/da

y/tr

aine

e; 3

2 da

ysn

o of

sup

ervi

sors

281.

0428

1.04

281.

04r

efre

sher

tra

inin

g of

su

perv

isor

sr

s. 25

0/da

y/tr

aine

e; 7

day

spo

sted

: 351

361

.48

61.4

861

.48

indu

ctio

n tr

aini

ng o

f sup

ervi

sors

rs.

250/

day/

trai

nee;

7 d

ays

61.4

861

.48

61.4

8


104

Job

trai

ning

of A

WW

rs.

150/

day/

trai

nee;

32

days

AWW

in 2

012-

13 :8

2819

; AW

W in

201

3-14

:39

75.3

144

00.5

4400

.5in

duct

ion

trai

ning

of A

WW

rs.

150/

day/

trai

nee;

8 d

ays

993.

8311

00.1

211

00.1

2r

efre

sher

tra

inin

g of

AW

Wr

s. 15

0/da

y/tr

aine

e; 7

day

s86

9.6

962.

6196

2.61

Job

trai

ning

of A

Wh

rs.

150/

day/

trai

nee;

8 d

ays

AWh

in 2

012-

13: 8

2819

; AW

h in

201

3-14

: 916

7799

3.83

972.

2697

2.26

ref

resh

er t

rain

ing

of A

Wh

rs.

150/

day/

trai

nee;

5 d

ays

621.

1468

7.58

687.

586

Con

tinge

ncy/

adm

in

expe

nses

stat

e ce

llr

s. 20

0000

per

ann

um

22

2

dis

tric

tr

s. 10

0000

per

ann

umn

o of

dis

t: 38

3838

38pr

ojec

tr

s. 60

000

per

proj

ect

per

annu

miC

ds

proj

ect:

544

326

326

326

AWC

rs.

1000

per

AW

C p

er a

nnum

AWC

in 2

012-

13: 8

2819

; AW

C in

201

3-14

: 916

7782

8.19

917

917

7IE

Cpr

ojec

tr

s. 50

000

per

proj

ect

per

annu

miC

ds

proj

ect:

544

272

272

272

AWC

rs.

1000

per

AW

C p

er a

nnum

AWC

in 2

012-

13: 8

2819

; AW

C in

201

3-14

: 916

7782

8.19

917

917

8R

ent

Proj

ect

offic

er

s. 66

00 p

r pr

ojec

t pe

r m

onth

iCd

s pr

ojec

t: 54

443

0.85

430.

8543

0.85

AWC

rur

al: r

s. 75

0 pe

r AW

C p

er

mon

thn

o of

AW

C in

ren

ted

build

ing:

6027

354

24.5

754

24.5

754

24.5

7

urb

an: r

s. 30

00 p

er A

WC

per

m

onth

nA

9Fu

rnit

ure/

Equ

ipm

ent

(onc

e in

5 y

ear)

(F

urni

ture

in

clud

es c

hair

/ta

ble,

com

pute

r, pr

inte

r, fa

x m

achi

ne)

stat

e ce

llr

s. 50

0000

per

sta

te

5 ##

#d

istr

ict

cell

rs.

4000

00 p

er d

ist

cell

no

of d

ist:

3815

2 ##

#pr

ojec

t r

s. 20

0000

per

pro

ject

iCd

s pr

ojec

t: 54

410

88 #

##

Sl n

oC

ompo

nent

Targ

etR

evis

ed n

orm

s in

201

2 (p

er

bene

ficia

ry p

er d

ay)

Phy

sica

l req

uire

men

tR

equi

red

budg

etar

y al

loca

tion

in

Fy 2

012-

13

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

3-14

Req

uire

d bu

dget

ary

allo

cati

on

in F

y

2014

-15

(Rs.

In la

kh)

Bih

ar



10E

quip

men

t (o

nce

in 5

yea

r)

AWC

(ga

s bu

rner

, con

nect

ion,

ut

ensi

ls, m

at c

arpe

t an

d ot

hers

)r

s. 70

00 p

er A

WC

n

o of

AW

C: 9

1677

6417

.39

###

11u

nifo

rmAW

W, A

Wh

, AW

W c

um

nutr

ition

al c

ouns

elor

(2

sare

e se

t ea

ch p

er a

nnum

)

rs.

300

per

sare

eAW

W &

AW

h in

201

2-13

82

819;

AW

W &

AW

h in

20

13-1

4 9

1677

993.

8311

00.1

211

00.1

2

Chi

ldre

n (3

-6 y

ears

) r

s. 25

0 pe

r ch

ild p

er a

nnum

no

of c

hild

ren

3-6

year

s:

36.6

7 la

kh91

67.7

9167

.791

67.7

12B

adge

AWW

, AW

h, A

WW

cum

nu

triti

onal

cou

nsel

or

(1 b

adge

eac

h)

rs.

25 p

er b

adge

AWW

& A

Wh

in 2

012-

13

8281

9; A

WW

& A

Wh

in

2013

-14

916

77

41.4

145

.84

45.8

4

13Fl

exi f

und

(sud

den

requ

irem

ent

like

refe

rral

ar

rang

emen

t,

mee

ting

, sho

rtag

e of

med

icin

e,

uten

sil)

AWC

rs.

1000

per

AW

C p

er a

nnum

AWC

in 2

012-

13: 8

2819

; AW

C in

201

3-14

: 916

7782

8.19

917

917

14W

eigh

ing

scal

eAW

Cr

s. 50

00 p

er A

WC

per

ann

um

for

repl

acem

ent

AWC

in 2

012-

13: 8

2819

; AW

C in

201

3-14

: 916

7741

40.9

545

83.8

545

83.8

5

15E

CC

E (

pare

nts

mee

t, ar

tisa

ns

invo

lvem

ent

for

mak

ing

toys

etc

.)

AWC

rs.

1000

per

AW

C p

er a

nnum

AWC

in 2

012-

13: 8

2819

; AW

C in

201

3-14

: 916

7782

8.19

917

917

16C

onst

ruct

ion

of

AW

CAW

Cr

s. 45

0000

per

AW

C b

uild

ing

no

of A

WC

run

ning

in

rent

ed b

uild

ing

and

need

to

be c

onst

ruct

ed: 6

0273

##

2712

28.5

###

16M

aint

enan

ce o

f go

vt o

wne

d IC

DS

build

ing

AWC

rs.

2000

per

AW

C p

er a

nnum

no

of A

WC

in g

ovt

owne

d bu

ildin

g: 31

404

628.

0862

8.08

628.

08

Sl n

oC

ompo

nent

Targ

etR

evis

ed n

orm

s in

201

2 (p

er

bene

ficia

ry p

er d

ay)

Phy

sica

l req

uire

men

tR

equi

red

budg

etar

y al

loca

tion

in

Fy 2

012-

13

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

3-14

Req

uire

d bu

dget

ary

allo

cati

on

in F

y

2014

-15

(Rs.

In la

kh)

Bih

ar


106

17u

p gr

adat

ion

of

AW

C b

uild

ing

(i

ncl a

ddit

iona

l ro

om fo

r AW

C)

AWC

rs.

1000

00 p

er A

WC

bui

ldin

gn

o of

AW

C in

gov

t ow

ned

build

ing:

3140

431

404

###

18M

anag

emen

t In

form

atio

n Sy

stem

(St

ate

spec

ific

of B

ihar

)

stat

en

An

A50

050

050

0

19Sn

eha

Shiv

ir

(nut

riti

on c

ost,

m

edic

al fa

cilit

y an

d m

isc

cam

p re

quir

emen

t fo

r 20

0 h

B d

ist

AWC

rs.

5950

per

cam

p ov

er a

cl

uste

r of

4 A

WC

(3

cam

ps p

er a

nnum

)

no

of A

WC

in 1

9 h

B di

st:

4327

4***

1931

.119

31.1

1931

.1

20A

WC

cum

crè

che

Cos

t of

cra

dles

, add

ition

al a

nd

all e

stab

lishm

ent

cost

(onc

e in

5

year

)

rs.

1800

0 pe

r AW

Cn

o of

AW

C: 4

584*

*82

5.09

###

hon

orar

ium

to

addi

tiona

l cr

èche

wor

ker

rs.

3000

per

wor

ker

per

mon

thA

dditi

onal

Cre

che

wor

ker

in 2

012-

13:4

141;

Add

ition

al

crec

he w

orke

r in

201

3-14

: 45

84

1490

.74

1650

.89

1650

.89

Car

e ite

ms,

soft

toys

, cle

anin

g m

ater

ials

, sna

cks

for

child

ren

in

AWC

cum

Cre

che

rs.

2800

0 pe

r AW

C p

er a

nnum

AWC

with

cre

che

in 2

012-

13:

4141

; AW

C w

ith c

rech

e in

201

3-14

: 458

4

1159

.47

1283

.48

1283

.48

21Sa

lary

/h

onor

ariu

m

21.1

AW

W

AWC

rs.

3000

per

wor

ker

per

mon

thAW

W in

201

2-13

: 828

19;

AWW

in 2

013-

14: 9

1677

2981

4.84

3300

3.72

3300

3.72

21.2

Add

itio

nal A

WW

cu

m n

utri

tion

al

coun

selo

r in

hB

di

stri

ct

AWC

rs.

3000

per

wor

ker

per

mon

th n

o of

AW

C in

19

hB

dist

: 43

274*

***

1557

8.64

1557

8.64

1557

8.64

Sl n

oC

ompo

nent

Targ

etR

evis

ed n

orm

s in

201

2 (p

er

bene

ficia

ry p

er d

ay)

Phy

sica

l req

uire

men

tR

equi

red

budg

etar

y al

loca

tion

in

Fy 2

012-

13

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

3-14

Req

uire

d bu

dget

ary

allo

cati

on

in F

y

2014

-15

(Rs.

In la

kh)

Bih

ar



21.3

Ang

anw

adi

hel

per

(AW

h)

AWC

rs.

1100

per

wor

ker

per

mon

thAW

h in

201

2-13

: 828

19;

AWh

in 2

013-

14: 9

1677

1093

2.11

1210

1.36

1210

1.36

21.4

link

wor

ker

(one

w

orke

r ov

er a

cl

uste

r of

4 A

WC

s)

AWC

rs.

750

per

wor

ker

per

mon

th n

o of

AW

C in

19

hB

dist

: 43

274*

***

973.

6797

3.67

973.

67

21.5

Sala

ries

in IC

DS

stat

e/d

istr

ict/

AWC

nA

nA

4855

.48

4979

.444

44.1

21.6

Sala

ries

for

CD

Po

and

Su

perv

isor

pos

ts

vaca

nt

dis

tric

tr

s. 40

000/

mon

th fo

r C

dpo

; r

s. 25

,000

/mon

th fo

r la

dy

supe

rvis

ors

no

of C

dpo

Vac

ant:

8 ; n

o of

sup

ervi

sors

Vac

ant:

1793

5417

.454

17.4

5417

.4

22C

hild

ren

wit

h sp

ecia

l nee

dAW

Cr

s. 20

00 p

er c

hild

ren

no

of C

Wsn

: 1.8

6 la

kh**

***

3720

3720

3720

Tota

l Fun

d R

equi

rem

ent

for

ICD

S in

Bih

ar (

Rs.

in la

kh)

3567

5137

5868

4032

13A

ctua

l Allo

cati

on fo

r IC

DS

in B

ihar

(R

s. in

lakh

)18

9966

1959

8922

5345

gap

bet

wee

n fu

nd r

equi

rem

ent

and

actu

al a

lloca

tion

s (R

s. in

lakh

)16

6785

1798

7917

7868

Not

e: Tr

aini

ng c

ompo

nent

fina

ncia

l nor

m t

aken

from

the

web

: ht

tp://

wcd

.nic

.in/ic

ds-w

orld

bank

/Tra

inin

g/IC

DS_

Trai

ning

_Rev

ised

_Nor

ms_

Adm

n_A

ppro

val_

by_G

OI.p

df* t

he n

o. o

f chi

ldre

n un

der

6 ye

ars

calc

ulat

ed b

ased

on

the

assu

mpt

ion

that

one

AW

C s

erve

s a

max

imum

of 8

0 ch

ildre

n un

der

6 ye

ars,

16 p

regn

anct

and

lact

atin

g m

othe

rs.

the

refo

re 9

1677

AW

Cs

in B

ihar

sho

uld

have

73.

34 la

kh c

hild

ren

unde

r 6

year

s, bu

t ex

clud

ing

seve

rely

mal

nour

ishe

d ch

ildre

n w

hich

is 2

5.94

% o

f tot

al c

hild

ren

cove

red

, num

ber

of c

hild

ren

unde

r 6

stan

ds a

t 54

.32

lakh

; the

no

of p

regn

ant&

lact

atin

g m

othe

rs a

s pe

r th

is c

alcu

latio

n is

14.

67 la

kh in

Bih

ar#2

5.94

% o

f tot

al 7

3.34

lakh

chi

ldre

n of

6-7

2 m

onth

s ar

e se

vere

ly m

alno

uris

hed

in B

ihar

, the

refo

re a

mou

ntin

g to

19.

02 la

kh;

** t

he A

WC

-cum

-crè

che

mod

el w

ill b

e pi

lote

d in

5%

AW

Cs

on a

75:

25 c

ost

shar

ing

basi

s w

ith t

he s

tate

s**

* 19

dis

tric

ts o

f Bih

ar h

ave

been

sel

ecte

d as

the

hig

h Bu

rden

dis

tric

ts t

hat

have

a t

otal

of 4

3274

AW

Cs.

sneh

a sh

ivir

are

arr

ange

d ov

er a

clu

ster

of 4

AW

Cs

and

ther

efor

e in

43

274/

4=10

818

AWC

s**

**o

ne l

ink

wor

ker

is a

ppoi

nted

ove

r a

clus

ter

of 4

AW

Cs

in 1

9 h

B di

stri

cts

and

ther

efor

e on

e w

orke

r in

432

74/4

=108

18 A

WC

s**

***

Chi

ldre

n w

ith d

isab

ility

of a

ll ty

pes

in t

he a

ge g

roup

0-4

yea

rs t

aken

from

Cen

sus

2011

; the

re is

no

othe

r so

urce

to

get

this

dat

a as

wel

l as

the

Cen

sus

2011

doe

s no

t m

entio

n th

e no

of C

Wsn

und

er 6

yea

rs o

f age

##C

onsi

deri

ng, t

hat

3140

4 AW

Cs

in B

ihar

are

run

ning

in g

over

nmen

t ow

ned

build

ing,

the

rem

aini

ng 9

1677

-314

04=6

0273

AW

Cs

are

func

tioni

ng in

ren

ted

build

ings

###

All

cons

truc

tion

and

esta

blis

hmen

t co

sts

that

are

onc

e fo

r 5

year

s, as

sum

ed t

o be

fini

shed

by

2014

-15

and

tota

l fun

d re

quire

men

t fo

r IC

DS

calc

ulat

ed a

ssum

ing

one

third

of

fund

req

uire

men

t fo

r su

ch c

ompo

nent

s ea

ch y

ear.

Sl n

oC

ompo

nent

Targ

etR

evis

ed n

orm

s in

201

2 (p

er

bene

ficia

ry p

er d

ay)

Phy

sica

l req

uire

men

tR

equi

red

budg

etar

y al

loca

tion

in

Fy 2

012-

13

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

3-14

Req

uire

d bu

dget

ary

allo

cati

on

in F

y

2014

-15

(Rs.

In la

kh)

Bih

ar


108

3.2 Fund requirement vs. Actual Allocation for ICdS in rajasthan

1. due to absence of component wise data in rajasthan for Fy 2012-13 to Fy 2014-15, we have taken the allocation for iCds as a whole in rajasthan, as mentioned in the demand for grants, department of social security and Welfare, government of rajasthan. total allocation under iCds (Budget estimates), calculated from demand for grants, for Fy 2012-13, Fy2013-14 and Fy2014-15 are Rs. 1244.22 crore, Rs. 1408.11 crore and Rs. 1725.68 crore respectively.

2. ICDS as a whole: taking into account all the component/interventions under iCds in rajasthan, to cover all the existing physical gaps as well as cover the beneficiaries under universalisation of iCds, total fund requirements as calculated in the table above for three years of our study are as under:

• in Fy 2012-13, fund requirement for iCds as a whole in rajasthan stands at Rs. 2089.07 crore whereas an amount of Rs. 1244.22 crore (Budget estimates) was allocated in Fy 2012-13 leaving a gap of Rs. 844.85 crore (40%).

• Against fund requirement of Rs. 2098.30 crore, an amount of Rs. 1408.11 crore has been provided for iCds as a whole (budget estimates) in Fy 2013-14 leaving a gap of Rs. 690.19 crore (33%).

• in Fy 2014-15 fund requirement under iCds as a whole in rajasthan stands at Rs. 2295.24 crore, whereas, an amount of only Rs. 1725.68 crore has been provided in the present Fy 2014-15, leaving a gap of Rs. 569.56 crore. thus to bridge the gap between requirement and allocation, the allocation will need to be increased by 25 per cent.

3.Supplementary nutrition Programme: the snp is the most important component under ICDS. Total number of beneficiaries covered under the programme in rajasthan is as follows:

48.89 lakh children under 6 years of age (based on the calculation that one AWCs serves maximum 80 children and there are 61100 AWC in rajasthan)

• 16,130 children who are severely malnourished (based on the calculation that 0.33% of total 48.89 lakh children are malnourished), and

• 9.78 lakh pregnant and lactating mothers (based on the calculation that one AWC serves maximum 16 p&l mothers and there are 61100 AWC in rajasthan).

total budgetary requirement to cover these beneficiaries for the FY 2012-13, FY 2013-14 and Fy 2014-15 calculated as: Rs. 901.09 crore, Rs. 901.09 crore and Rs. 1086.59 crore respectively. The first two year’s fund requirement calculations are in accordance with new norms for snp for 19 high Burdened districts as well as the old norms for snp continued for the remaining 14 districts in rajasthan. however, fund requirement for Fy 2014-15 has been in accordance with the new norms that are applicable for all 33 districts in rajasthan from the Fy 2014-15.

4. Construction of new AWCs: out of total 61100 AWCs in rajasthan, 16388 AWCs are running in rented building for which buildings need to be constructed. govt of india has targeted construction of 2 lakh AWCs in 12th Five year plan from iCds funds in all over india. For the remaining AWCs in all india running in rented building, the planning Commission has to issue directives to leverage funds from other sources like BrgF, msdp, mgnregA, ACA, 13th Finance Commission and other similar schemes. Based on our calculation, the total fund requirement in rajasthan, irrespective of the source of fund, for the 16388 AWCs stands at : Rs.737.46 crore in accordance with the norm for Construction of rs. 450000 per AWC building for all states other than ne region states.



Tabl

e 3.

2: F

und

Req

uire

men

t Vs.

Act

ual A

lloca

tion

und

er IC

DS

in R

ajas

than

Sl n

oC

ompo

nent

Targ

etR

evis

ed n

orm

s in

201

2 (p

er b

enefi

ciar

y pe

r da

y)P

hysi

cal r

equi

rem

ent

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

2-13

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

3-14

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

4-15

(R

s. In

lakh

)R

ajas

than

1su

pple

men

tary

n

utri

tion

prog

ram

me

Chi

ldre

n (6

-72

mon

ths)

rs.

6.00

/chi

ld/d

ay fo

r 19

hB

dist

; rs.

4.00

/chi

ld/d

ay fo

r 19

re

mai

ning

dis

t

70.3

8 la

kh (

2012

-13)

; 73

.34

lakh

(20

13-1

4)*

7426

5.71

8056

3.53

9777

0.22

seve

rely

und

erw

eigh

t ch

ildre

n (6

-72

mon

ths)

rs.

9.00

/chi

ld/d

ay fo

r 19

hB

dist

; rs.

6.00

/chi

ld/d

ay fo

r 19

re

mai

ning

dis

t

17.1

9 la

kh (2

012-

13);

19.0

2 la

kh (

2013

-14)

#41

479.

9945

340.

2451

366.

99

preg

nant

wom

en &

lac

tatin

g m

othe

rsr

s. 7.

00/w

oman

/day

for

19 h

B di

st; r

s. 5.

00/w

oman

/day

for

19

rem

aini

ng d

ist

13.2

5 la

kh (

2012

-13)

; 14

.67

lakh

(20

13-1

4)*

2403

0.87

2615

6.78

3080

3.47

2pr

e-sc

hool

edu

catio

nn

o. o

f 3-6

yrs

chi

ldre

n r

s. 30

00 p

er k

it pe

r AW

C p

er

year

no

of A

WC

: 611

0018

8318

8318

83

3m

edic

ine

kit

AWC

rs.

1000

per

AW

C p

er y

ear

no

of A

WC

: 611

0061

161

161

14

mon

itori

ng e

valu

atio

n (p

rint

ing

of v

ario

us

reco

rd, r

egis

ters

, m

onth

ly m

obile

re

char

ge fo

r AW

W)

r

s. 10

00 p

er o

pera

tiona

l AW

C/m

ini A

WC

;

rs.

50 p

er A

WW

for

iCt

no

of A

WC

: 611

00; n

o of

AW

W: 6

1100

641.

5564

1.55

641.

55

5tr

aini

ng C

ompo

nent

Job

trai

ning

of C

dpo

/A

Cd

por

s. 50

0/da

y/tr

aine

e; 3

2 da

ysn

o of

Cd

po s

anct

ione

d:

443

70.8

870

.88

70.8

8

indu

ctio

n tr

aini

ng o

f Cd

po/

AC

dpo

rs.

500/

day/

trai

nee;

7 d

ays

15.5

115

.51

15.5

1

refr

eshe

r tr

aini

ng o

f Cd

po/

AC

dpo

rs.

300/

day/

trai

nee;

7 d

ays

9.3

9.3

9.3

Job

trai

ning

of s

uper

viso

rsr

s. 25

0/da

y/tr

aine

e; 3

2 da

ysn

o of

sup

ervi

sors

sa

nctio

ned:

249

719

9.76

199.

7619

9.76

ref

resh

er t

rain

ing

of

supe

rvis

ors

rs.

250/

day/

trai

nee;

7 d

ays

43.7

43.7

43.7

indu

ctio

n tr

aini

ng o

f su

perv

isor

sr

s. 25

0/da

y/tr

aine

e; 7

day

s43

.743

.743

.7


110

Job

trai

ning

of A

WW

rs.

150/

day/

trai

nee;

32

days

no

of A

WW

: 611

0029

32.8

2932

.829

32.8

indu

ctio

n tr

aini

ng o

f AW

Wr

s. 15

0/da

y/tr

aine

e; 8

day

s73

3.2

733.

273

3.2

ref

resh

er t

rain

ing

of A

WW

rs.

150/

day/

trai

nee;

7 d

ays

641.

5564

1.55

641.

55Jo

b tr

aini

ng o

f AW

hr

s. 15

0/da

y/tr

aine

e; 8

day

sn

o of

AW

h: 6

1100

733.

273

3.2

733.

2r

efre

sher

tra

inin

g of

AW

hr

s. 15

0/da

y/tr

aine

e; 5

day

s45

8.25

458.

2545

8.25

6C

ontin

genc

y/ad

min

ex

pens

esst

ate

cell

rs.

2000

00 p

er a

nnum

2

22

dis

tric

tr

s. 10

0000

per

ann

umn

o of

dis

t: 33

3333

33pr

ojec

tr

s. 60

000

per

proj

ect

per

annu

miC

ds

proj

ect:

304

182.

418

2.4

182.

4

AWC

rs.

1000

per

AW

C p

er a

nnum

no

of A

WC

: 611

0061

161

161

17

IEC

proj

ect

rs.

5000

0 pe

r pr

ojec

t pe

r an

num

iCd

s pr

ojec

t: 30

415

215

215

2

AWC

rs.

1000

per

AW

C p

er a

nnum

no

of A

WC

: 611

0061

161

161

18

Ren

tPr

ojec

t of

fice

rs.

6600

per

pro

ject

per

mon

thiC

ds

proj

ect:

304

240.

7724

0.77

240.

77AW

Cr

ural

: rs.

750

per A

WC

per

m

onth

no

of r

ural

AW

C in

re

nted

bui

ldin

g: 14

421*

*12

97.8

912

97.8

912

97.8

9

urb

an: r

s.30

00 p

er A

WC

per

m

onth

no

of u

rban

AW

C in

re

nted

bui

ldin

g: 19

67**

708.

1270

8.12

708.

12

9Fu

rnit

ure/

Equ

ipm

ent

(onc

e in

5 y

ear)

(F

urni

ture

in

clud

es c

hair

/ta

ble,

com

pute

r, pr

inte

r, fa

x m

achi

ne)

stat

e ce

llr

s. 50

0000

per

sta

te

5 ##

dis

tric

t ce

llr

s. 40

0000

per

dis

t ce

lln

o of

dis

t: 33

132

##pr

ojec

t r

s. 20

0000

per

pro

ject

iCd

s pr

ojec

t: 30

460

8 ##

10E

quip

men

t (o

nce

in 5

yea

r)

AWC

(ga

s bu

rner

, con

nect

ion,

ut

ensi

ls, m

at c

arpe

t an

d ot

hers

)

rs.

7000

per

AW

C

no

of A

WC

: 611

0042

77 #

#

Sl n

oC

ompo

nent

Targ

etR

evis

ed n

orm

s in

201

2 (p

er b

enefi

ciar

y pe

r da

y)P

hysi

cal r

equi

rem

ent

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

2-13

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

3-14

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

4-15

(R

s. In

lakh

)R

ajas

than



11u

nifo

rmAW

W, A

Wh

, AW

W c

um

nutr

ition

al c

ouns

elor

(2

sare

e se

t ea

ch p

er a

nnum

)

rs.

300

per

sare

en

o of

AW

W: 6

1100

; n

o of

AW

h: 6

1100

733.

273

3.2

733.

2

12B

adge

AWW

, AW

h, A

WW

cum

nu

triti

onal

cou

nsel

or

(1 b

adge

eac

h)

rs.

25 p

er b

adge

no

of A

WW

: 611

00;

no

of A

Wh

: 611

0030

.55

30.5

530

.55

13Fl

exi f

und

(sud

den

requ

irem

ent

like

refe

rral

ar

rang

emen

t,

mee

ting

, sho

rtag

e of

med

icin

e,

uten

sil)

AWC

rs.

1000

per

AW

C p

er a

nnum

no

of A

WC

: 611

0061

161

161

1

14W

eigh

ing

scal

eAW

Cr

s. 50

00 p

er A

WC

per

ann

um

for

repl

acem

ent

no

of A

WC

: 611

0030

5530

5530

55

15E

CC

E (

pare

nts

mee

t, ar

tisa

ns

invo

lvem

ent

for

mak

ing

toys

etc

.)

AWC

rs.

1000

per

AW

C p

er a

nnum

no

of A

WC

: 611

0061

161

161

1

16C

onst

ruct

ion

of

AW

CAW

Cr

s. 45

0000

per

AW

C b

uild

ing

n

o of

AW

C r

unni

ng in

re

nted

bui

ldin

g an

d ne

ed

to b

e co

nstr

ucte

d: 1

6388

7374

6 ##

17M

aint

enan

ce o

f go

vt o

wne

d IC

DS

build

ing

AWC

rs.

2000

per

AW

C p

er a

nnum

no

of A

WC

in

gov

ernm

ent

owne

d bu

ildin

g: 40

934*

*

818.

6881

8.68

818.

68

18u

p gr

adat

ion

of

AW

C b

uild

ing

(i

ncl a

ddit

iona

l ro

om fo

r AW

C)

AWC

rs.

1000

00 p

er A

WC

bui

ldin

gn

o of

AW

C: 4

0934

4093

4 ##

Sl n

oC

ompo

nent

Targ

etR

evis

ed n

orm

s in

201

2 (p

er b

enefi

ciar

y pe

r da

y)P

hysi

cal r

equi

rem

ent

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

2-13

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

3-14

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

4-15

(R

s. In

lakh

)R

ajas

than


112

20Sn

eha

Shiv

ir

(nut

riti

on c

ost,

m

edic

al fa

cilit

y an

d m

isc

cam

p re

quir

emen

t fo

r 20

0 h

B d

ist

AWC

rs.

5950

per

cam

p ov

er a

cl

uste

r of

4 A

WC

(3

cam

ps p

er

annu

m)

no

of A

WC

in 1

9 h

B di

st:

3216

014

35.1

414

35.1

414

35.1

4

21A

WC

cum

crè

che

Cos

t of

cra

dles

, add

ition

al a

nd

all e

stab

lishm

ent

cost

(on

ce in

5

year

)

rs.

1800

0 pe

r AW

Cn

o of

AW

C: 3

055*

**54

9.9

##

hon

orar

ium

to

addi

tiona

l cr

èche

wor

ker

rs.

3000

per

wor

ker

per

mon

thn

o of

add

ition

al c

rèch

e w

orke

r: 30

5510

99.8

1099

.810

99.8

Car

e ite

ms,

soft

toys

, cle

anin

g m

ater

ials

, sna

cks

for

child

ren

in A

WC

cum

Cre

che

rs.

2800

0 pe

r AW

C p

er a

nnum

no

of A

WC

: 305

585

5.4

855.

485

5.4

22Sa

lary

/h

onor

ariu

m

21.1

AW

W

AWC

rs.

3000

per

wor

ker

per

mon

thn

o of

AW

W: 6

1100

2199

621

996

2199

621

.2A

ddit

iona

l AW

W

cum

nut

riti

onal

co

unse

lor

in h

B

dist

rict

AWC

rs.

3000

per

wor

ker

per

mon

thn

o of

AW

W fo

r 19

hB

dist

rict

: 321

6011

577.

611

577.

611

577.

6

21.3

Ang

anw

adi

hel

per

(AW

h)

AWC

rs.

1100

per

wor

ker

per

mon

thn

o of

AW

h: 6

1100

8065

.280

65.2

8065

.2

21.4

link

wor

ker

(one

w

orke

r ov

er a

cl

uste

r of

4 A

WC

s)

AWC

rs.

750

per

wor

ker

per

mon

th n

o of

AW

C in

19

hB

dist

: 32

160

723.

672

3.6

723.

6

21.5

Sala

ries

in IC

DS

stat

e/d

istr

ict/

AWC

nA

nA

1058

211

504.

912

649.

421

.6Sa

lari

es fo

r C

DP

o a

nd

Supe

rvis

or p

osts

va

cant

dis

tric

tr

s. 40

000/

mon

th fo

r C

dpo

; r

s. 25

,000

/mon

th fo

r la

dy

supe

rvis

ors

no

of C

dpo

Vac

ant:

225

; n

o of

sup

ervi

sors

Vac

ant:

967

3981

3981

3981

Sl n

oC

ompo

nent

Targ

etR

evis

ed n

orm

s in

201

2 (p

er b

enefi

ciar

y pe

r da

y)P

hysi

cal r

equi

rem

ent

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

2-13

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

3-14

Req

uire

d bu

dget

ary

allo

cati

on in

Fy

201

4-15

(R

s. In

lakh

)R

ajas

than



22C

hild

ren

wit

h sp

ecia

l nee

dAW

Cr

s. 20

00 p

er c

hild

no

of C

Wsn

: 557

48**

**11

14.9

611

14.9

611

14.9

6

Tota

l Fun

d R

equi

rem

ent

for

ICD

S in

Bih

ar (

Rs.

in la

kh)

2089

0720

9830

2295

24A

ctua

l Allo

cati

on fo

r IC

DS

in B

ihar

(R

s. in

lakh

)12

4422

1408

1117

2568

gap

bet

wee

n fu

nd r

equi

rem

ent

and

actu

al a

lloca

tion

s (R

s. in

lakh

)84

485

6901

956

956

Not

e: Tr

aini

ng c

ompo

nent

fina

ncia

l nor

m t

aken

from

the

web

: ht

tp://

wcd

.nic

.in/ic

ds-w

orld

bank

/Tra

inin

g/IC

DS_

Trai

ning

_Rev

ised

_Nor

ms_

Adm

n_A

ppro

val_

by_G

OI.p

df

* t

he n

o. o

f chi

ldre

n un

der

6 ye

ars

calc

ulat

ed b

ased

on

the

assu

mpt

ion

that

one

AW

C s

erve

s a

max

imum

of 8

0 ch

ildre

n in

the

age

gro

up o

f 6 t

o 72

mon

ths

and

16 p

regn

ant

and

lact

atin

g m

othe

rs, t

here

fore

48.

89 la

kh c

hild

ren

and

9.78

lakh

wom

en/m

othe

rs *

*Ann

ual p

rogr

ess

rep

ort

(iCd

s &

We)

201

2-13

in r

ajas

than

; web

: htt

p://w

ww

.wcd

.raj

asth

an.g

ov.in

/doc

s/A

nu

Al-

pro

g-2

012-

13.p

df n

ote:

tota

l no

of A

WC

run

ning

in r

ente

d bu

ildin

g as

per

the

ann

ual r

epor

t is

163

88 o

f whi

ch 1

4421

are

rur

al a

nd 1

967

are

urba

n (b

ased

on

the

fact

tha

t ab

out

12 p

erce

nt o

f AW

C in

raj

asth

an a

re u

rban

) *

** t

he A

WC

-cum

-crè

che

mod

el w

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114

4.uNIT COST ANAlySIS OF SElECTEd uNITS uNdEr ICdS dErIvEd FrOm ExPErIENTIAl FIEld STudyThis section finds out the actual requirement of different items under two major components of iCds, that is, supplementary nutrition programme (snp) and pre-school education (PSE), based on field study of implementation experience in Bihar and rajasthan.

4.1 Pre-School Education

table 4.1 describes the items required for pre-school education component under iCds and the associated costs per annum for each item, thereby calculating the total cost per pse kit per annum per AWC.

• evident from table 4.1 total cost per pse kit per annum per AWC as per our field study is calculated as rs. 23,980 against the present norm of rs. 3000 per kit per AWC per annum. taking this norm to be applicable for smooth functioning of pse in every AWC, total fund requirement for pse calculated as:

a. Rs. 219.84 crore for 91677 AWC in Bihar, and

b.Rs. 146.52 crore for 61100 AWC in rajasthan.

CoMPonEnT ITEM RATE (InR) REquIREMEnT CoST PER

AnnuMpre-school education

pencil rs. 4 2 pencils per child per month 3840eraser 5 1 eraser per child month 2400Colour Crayon (pack of 12)

10 1 pack per child per month 4800

Blocks (toys)subject wise

100 10 Boxes for one year 1000

sharpener 4 5 sharpener for the whole Centre for one month

240

slate 40 40 piece for one year 1600Chalk (pack) 20 10 packet per month per AWC 2400note Book rs. 15 1 note Book per child per month 7200poster 100 5 piece per AWC per year 500

ToTAl CoST PER KIT PER AnnuM PER AWC 23980

Table 4.1: Item Wise Cost Analysis for Pre-School Education (PSE)



4.2 Supplementary Nutrition Programme

table 4.2 therefore shows items under snp and pse, the quantity requirement per month in each AWC and the associated costs to purchase those items, thereby calculating the actual cost requirement per AWC per month (25 days in a month) and cost per beneficiary per day.

• evident from table 4.2, unit cost for snp beneficiaries per day as per our field study is calculated as, rs. 12.04 per child (of 6-72 months) per day; rs. 24.06 per severely malnourished child per day and rs. 25.87 per pregnant and lactating mothers per day. this is against the revised norms for iCds of rs. 6 per child per day, rs. 9 per severely underweight child per day and rs. 7 per pregnant Woman and lactating mother per day.

• taking into account the unit costs for beneficiaries under SNP derived from our field study, total fund requirements for three category of beneficiaries for Bihar and rajasthan are as under:

a. SnP in Bihar: Fund requirement for 54.32 lakh children in the age group of 6 to 72 months in Bihar @rs.12.06 per child per day for 300 feeding days is calculated as rs. 1965.18 crore; Fund for 19.02 lakh severely underweight children @rs.24.06 per child per day for 300 feeding days is calculated as rs. 1373.21 crore and fund for 14.67 lakh pregnant women and lactating mothers @rs.25.87 per woman per day for 300 feeding days is calculated as rs. 1138.41 crore. thus, total fund requirement for snp stands at rs. 4476.80 crore.

b. SnP in Rajasthan: Fund requirement for 48.89 lakh children under 6 years of age in rajasthan @rs.12.06 per child per day for 300 feeding days is calculated as Rs. 1768.48 crore; Fund for 16130 severely malnourished children @rs.24.06 per child per day for 300 feeding

days is calculated as Rs. 11.64 crore and fund for 9.78 lakh pregnant Women and lactating mothers @rs.25.87 per woman per day for 300 feeding days is calculated as Rs. 758.72 crore. thus, total fund requirement for snp stands at Rs. 2538.84 crore.


116

CoMPonEnT CATEgoRy ITEM RATE REquIREMEnT CoST

supplementary nutrition programme

Children (6-72 months)

rice 22 /Kg 80 Kg per month rs 1760 /month

pulses 70/Kg 22 Kg per month rs.1540 /month

gram 52/Kg 5 Kg per month rs. 260/monthVegetables 15 /Kg 125 Kg per month rs.1875 /

month Jaggery 45/Kg 15 Kg per month rs. 675 /month ground nut 110/Kg 15 Kg per onth rs. 1650/

monthCommon salt 16/Kg 5 Kg per month rs.80 /monthedible oil 90/Kg 8 litre per month rs.720 /monthspices 200/kg Assortment - 5 Kg per

monthrs. 1000/month

Fuels 450/Quintal 2 Quintal rs. 900/monthtransportation for purchased food item

nA 600 per month rs. 600/month

snacks nA 1000 per month rs. 1000/month

total Cost - per AWC per month (25 days) rs.12060/ month

total Cost - per Child per day* 12.06total Cost - per Child per day (severely underweight Child)**

Additional 200 ml milk per child per day @rs.8.00 and additional egg or banana per child per day @rs.4.00

24.06

total Cost - per Woman per day (pregnant Woman and lactating mother)***

Additional 200 ml milk per woman per day @rs.8.00 and additional egg or banana per woman per day rs.4.00 and increase in the quantity of food amounting to an increase in cost by 15 per cent (rs.12.06x15%)

25.87

* Calculated based on the fact that one AWC is serving 40 children, as per the empirical field report for 25 days in a month, therefore per child per day stands at (rs.12060/40 children)/25 days**Cost per child (severely malnourished) per day is an additional rs. 12 for 200 ml milk per day @rs.8 and additional egg or banana @rs.4 per day over and above of cost per child per day of rs.12.06, that is a total of rs12.06+rs.8+rs.4= rs.24.06***Cost per p&l woman per day calculated as an additional 200 ml milk per woman per day @rs.8 and additional egg or banana per woman per day @rs.4 and increase in the quantity of food amounting to an increase in cost by 15 per cent(rs.12.06*15/100=rs. 1.80), that is total cost=rs.12.06+rs.1.80+rs.8+rs.4= rs.25.87

Table 4.2: Item Wise Cost Analysis for Supplementary nutrition Programme (SnP)



5. ExTENT ANd quAlITy OF SPENdINg FOr ICdSBudget outlays for iCds have increased significantly over the years in India when compared to the previous years, but the allocations are still much less than the requirement. during the 11th Five year plan period (Fy 2007-08 to Fy 2011-12), the total union budget allocation for iCds was rs. 39310.5 crore against the proposed outlays for 11th five year plan period of Rs. 42400 crore. therefore union government allocated about 93 per cent of proposed budget for the 11th plan period.

the proposal to strengthen and restructure the iCds scheme through a series of programmatic, management and institutional reforms, changes in norms, including putting iCds in a mission mode has been approved by the government of india for continued implementation of the iCds scheme in the 12th Five year plan and implementation of restructured and strengthened iCds scheme in mission mode inter-alia consisting of the following provisions within an overall budget allocation of rs.

1,23,580 crore as government of india share. rs. 47976.69 crore has been allocated in the first three years of the 12th Five Year Plan, i.e. FY 2012-13, 2013-14 and 2014-15. thus, according to the government’s own commitment another rs. 75603.31 crore has to be allocated in the remaining two Financial years of the 12th Five year plan, i.e. in Fy 2015-16 and Fy 2016-17.

the following section assesses the extent of public spending on the iCds programme and the quality of spending with regard to the outputs and services delivered in the sample state of Bihar and rajasthan.

5.1 Financing in India

data for outlays and spending for iCds in All india, as depicted in table 3.6 are taken from the expenditure Budget, Volume ii, ministry of Women and Child development, government of India. Outlays for ICDS has shown significant increase from rs. 9348.19 crore to rs. 18691 crore between the Fy 2011-12 and Fy 2014-15.

year BE RE AE

2011-12 9348.19 12789.59 14266.21

2012-13 14578.05 14337.9 15767.242013-14 16328.2 14947.79 nA2014-15 18691 nA nA

Table 5.1: Allocations and Spending under ICDS in India6 (Rs. in Crore)


118

5.2 Financing ICdS in bihar7

Allocation for iCds (Budget estimates) in Bihar as mentioned in the demand for grants, department of social security and Welfare, government of Bihar is depicted in the figure. Budget for ICDS are given under two broad heads such as iCds (general) and supplementary nutrition. the fund allocated for iCds general cover all the non-food expenditure, but there is no clarity on how much exactly provided for other important services such as pre-school education, health services, growth monitoring etc.

5.2.1 overall allocation on iCds in Bihar

Allocation for iCds (Budget estimates) in Bihar as mentioned in the demand for grants, department of social security and Welfare, government of Bihar is depicted in the figure. Budget for ICDS are given under two broad heads such as iCds (general) and supplementary nutrition. the fund allocated for iCds general cover all the non-food expenditure, but there is no clarity on how much exactly provided for other important services such as pre-school education, health services, growth monitoring etc.

5.2.2 Fund requirement vs. Actual Allocation in Bihar

1. Allocations for iCds in the state of Bihar has been far below the actual fund requirements in all three Fy of this study, as per our unit cost analysis on present physical requirements. taking into account all the component/interventions under iCds, to cover all the existing physical gaps as well as to cover the beneficiaries under universalization of iCds, total fund requirement is calculated as Rs. 3567.51 crore, Rs. 3758.68 crore and Rs. 4132.13 crore for Fy 2012-13, Fy2013-14 and Fy2014-15 respectively. Actual allocations have been far below at Rs. 1899.66 crore (47 per cent lower than requirement), Rs. 1959.89 crore (48 per cent lower than requirement) and Rs. 2253.45 crore (44 per cent lower than requirement) in Fy 2012-13, Fy 2013-14 and Fy 2014-15 respectively. in other words, to bridge the present gap, allocation for iCds has to be increased by 44 per cent.

2. Fund distribution is given under the two broad categories, i.e. iCds general and the nutrition programme. iCds general has not broken down further on specific components such as preschool education, medicine kits etc. Also in the absence of specific component

Figure 5.1: Actual Allocation in ICDS over the years in Bihar (Rs. in Crore)

1500

2000

2500

2014-152013-142012-132011-12

1859.17

2054.072146.99

2253.45



wise data available in demand for grants under social Welfare department in case of Bihar, exact budget allocations on salaries, wages, and establishment expenditures cannot be measured.

3. Component wise allocations under the scheme revealed that there has been major focus on special nutrition component shifting a chunk of fund from iCds general to the snp component of the scheme. total budgetary requirement to cover these beneficiaries for the Fy 2012-13, Fy 2013-14 and Fy 2014-15 is calculated as Rs. 1397.77 crore, Rs. 1520.61 crore and Rs. 1799.41 crore respectively. the first two year’s fund requirement calculations are in accordance with new norms for snp for 19 high Burdened districts as well as the old norms for snp continued for the remaining 19 districts in Bihar. however, fund requirement for Fy 2014-15 has been in accordance with the new norms that are applicable for all 38 districts in Bihar from the Fy 2014-15.

Actual allocation for snp under the major head no. 2236, in the detailed demand for grants, social security and welfare department, government of Bihar, stands at rs. 1074.81 crore, rs. 1717.99 crore and rs. 1413.66 crore in Fy 2012-13, Fy 2013-14 and Fy 2014-15 respectively. there is a shortfall of allocation by rs. 322.96 crore in Fy 2012-13, rs. 197.38 crore in 2013-14, and rs.385.75 crore in Fy2014-15.

4. Considering that remaining fund after calculating fund for supplementary nutrition programme is under iCds general, the total fund requirement for iCds general, as per our unit cost calculations stands at Rs. 2169.74 crore, Rs. 2238.08 crore and Rs. 2232.72 crore in Fy2012-13, Fy2013-14 and Fy2014-15 respectively, against which actual allocations in Bihar have been Rs. 736.60 crore, Rs. 947.14 crore and Rs. 839.79 crore respectively as is evident from the detailed demand for grants, social security and welfare department,

government of Bihar. there are shortfalls of Rs. 1433.14 crore, Rs. 1290.94 crore and Rs. 1392.93 crore in Fy 2012-13, Fy2013-14 and Fy2014-15 respectively.

5. Staff salaries: mentioned in the detailed demand for grants, social security and Welfare department, government of Bihar, actual allocation on total salaries under iCds is calculated as Rs. 4855.48 crore, Rs. 4979.40 crore and Rs. 4444.10 crore in Fy 2012-13, Fy 2013-14 and Fy 2014-15 respectively, which includes salaries of all staff including Cdpos/ACdpos, supervisors and AWWs/AWhs in Bihar.

6. Salaries of CDPo and Supervisor posts vacant: in Bihar, posts of 8 Cdpo and 1793 lady supervisors are still vacant and considering that they should be recruited at starting salaries of rs. 40000/month for Cdpo and rs. 25000/month for lay supervisor. total fund requirement towards salaries of these vacant posts is calculated as Rs. 5417.40 crore.

7. since Fy 2012-13, for construction and maintenance of AWCs there has been an allocation of only rs. 7.00 crore in 2012-13 and thereafter in 2013-14 and 2014-15 there has been no allocation for construction and maintenance in Bihar. this is against the fund requirement of Rs. 2712.29 crore towards construction of AWC in Bihar. however, point to be noted is that the government of india has targeted construction of 2 lakh AWCs in 12th Five year plan from iCds funds in all over india whereas, for the remaining AWCs in all india running in rented building, the planning Commission has to issue directives to leverage funds from other sources like BrgF, msdp, mgnregA, ACA, 13th Finance Commission and other similar schemes. Whatever be the source of fund towards Construction of AWC, the gap between fund requirement for bridging up physical gaps in Bihar and actual allocation stands at Rs. 2705.29 crore.


120

5.2.3 Actual Allocation vs. spending in Bihar

1. in terms of resource utilisation, utilization of allocated resources are quite satisfactory and better in iCds while compared to other government programmes (refer table 5.2.3). the fund utilization picked up after the supreme Court’s order in 2005, with remarkable increase in the number of projects and AWCs being operational. however, on an average 26.5 percent of allocated fund for iCds in Bihar remained unspent for 2011-12 and 2012-13. the Fy 2011-12 has shown huge under utilization of allocated fund in Bihar with about 35 per cent remaining unspent.

2. out of total fund allocation for iCds general rs. 266.58 crore and rs. 138.78 crore remained

unspent in Fy 2011-12 and Fy 2012-13. on the other hand, out of total fund allocation for snp, rs. 400.16 crore and rs. 186.36 crore remained unspent in Fy 2011-12 and Fy 2012-13 respectively.

3. it is evident from detailed component wise data that the fund allocation for iCds through nABArd of rs. 157.18 lakh has not been utilised in Fy 2011-12 and carried forward to the next year’s budget (Budget estimate Fy 2012-13) which is showing rs. 218.35 lakh. Also significant part of the central grants for ICDS under Css and “snp for children and pregnant women” under the head of special component plan and centrally sponsored scheme has remained unutilised.

Figure 5.2: Fund Requirement vs. Actual Allocation in Bihar (Rs. in Crore)


3567.51

1899.66

3758.68

1959.89

4032.13

2253.45

0

1000

2000

3000

4000

5000

FY2014-15FY 2013-14FY 2012-13

year Allocation (RE) Expenditure (AE) Amount unspent

2011-12 1901.34 1234.61 663.73 (35.07%)

2012-13 1811.4 1486.27 325.13 (17.95%)

Table 5.2 under-utilisation/overutilization of Allocated Fund, Bihar8 (Rs. in Crore)



5.3 Financing ICdS in rajasthan

5.3.1 overall allocation on iCds in rajasthan

Fund allocation (revised estimates), as calculated from demand for grants under social security and Welfare department in rajasthan has shown steady increase over the years between 2011-12 and 2014-15. however, data from the Annual progress report (iCds & We) 2012-13 differs slightly from that calculated from demand for grants.

5.3.2 Fund requirement vs. Actual Allocation in rajasthan

Actual allocation on iCds in rajasthan is far below the fund requirement, as per our calculation. Allocations under iCds as a whole in Fy2012-13, Fy2013-14 and Fy2014-15, as calculated from the existing physical requirements based on the unit cost provided by government stands at rs. 2089.07 crore, rs. 2098.30 crore and rs. 2295.24 crore respectively in rajasthan, whereas actual allocations have been rs. 1244.22 crore

(shortfall of 40 per cent of fund requirement), rs. 1408.11 (shortfall of 33 per cent of fund requirement) and rs. 1725.68 crore (shortfall of 25 per cent of fund requirement) for Fy2012-13, Fy 2013-14 and Fy 2014-15 respectively. in other words, to bridge the present gap, allocation for iCds has to be increased by 25 per cent.

latest data on fund allocations and expenditure is available in Annual progress report for 2012-13 where latest available official data on component wise allocations and expenditure for Fy 2011-12 and Fy 2012-13 has been mentioned.

1. evident from the component wise distribution of fund, a major part of the available resources spent on the salaries and Establishment cost such as ‘Construction of AWC’, ‘Construction of CDPO office’ or maintenance/repair of AWC apart from putting a lump-sum amount towards the two broad categories: iCds (general) and supplementary nutrition programme. moreover, alike Bihar, the iCds general is not broken down further onto expenditure on critical components under iCds

Figure 5.3: ICDS Allocation over the years in Rajasthan (Rs. in Crore)

500

1000

1500

2000

2014-152013-142012-132011-12

865.61

1244.21

1408.11

1725.68


122

such as, pre-school education, health check up.

total fund requirement to cover 48.89 lakh children under the age of 6; 16130 severely malnourished children in 6-72 months age group and 9.78 lakh pregnant and lactating mothers calculated as: rs.901.09 crore in both the Fy 2012-13 and 2013-14 and rs. 1086.59 crore in FY 2014-15. The first two year’s fund requirement calculations are in accordance with new norms for snp for 19 high Burdened districts as well as the old norms for snp continued for the remaining 19 districts in Bihar. however, fund requirement for Fy 2014-15 has been in accordance with the new norms that are applicable for all 38 districts in Bihar from the Fy 2014-15.

Actual allocations as of Fy 2012-13 (the latest available figures on different components wise allocations) is rs. 680.44 for snp crore leaving a gap of rs. 220.65 crore in Fy 2012-13.

3. Training components: total fund required to provide training to the sanctioned Cdpos/ACdpos, supervisors and AWW/AWhs as per the norms stands at Rs.5881.85 crore in Fy 2012-13, Fy 2013-14 and Fy 2014-15, whereas a minuscule amount of RS. 6.68 crore has been provided in Fy 2012-13. there was a shortfall of Rs. 4653.84 crore in Fy 2012-13.

4. Maintenance of government owned buildings: there are 40934 AWCs in rajasthan are running in government owned building at state and district levels for which a maintenance cost of rs.2000 per AWC per annum has to be provided as per the norm. total Allocation required for this calculated as Rs. 8.19 crore in Fy 2012-13, Fy 2013-14 and Fy 2014-15. Against this requirement Rs.5 crore has been provided in Fy 2012-13 leaving a gap of Rs.3.19 crore.

5. Staff salaries: mentioned in the detailed demand for grants, social security and Welfare department, government of rajasthan,

actual allocation on total salaries under iCds calculated as Rs.10582 crore, Rs.11504.9 crore and Rs.12649.4 crore in Fy 2012-13, Fy 2013-14 and Fy 2014-15 respectively which includes salaries of all staff including Cdpos/ACdpos, supervisors and AWWs/AWhs in rajasthan.

a. Salaries of AWW: there are 61100 AWWs sanctioned in rajasthan for which rs.3000 per worker per month has been entitled under the revised norm. total fund requirement towards honorarium of all these AWWs amounts to Rs.219.96 crore Fy 2012-13, Fy 2013-14 and Fy 2014-15. Against this fund requirement, only a meagre amount of Rs.27.72 crore has been allocated in Fy 2012-13 leaving a gap of Rs. 192.24 crore.

b. Salaries of CDPo and Supervisor posts vacant: in Bihar, posts of 225 Cdpo and 967 lady supervisors are still vacant and considering that they should be recruited paying basic salaries of rs.40000/month for Cdpo and rs. 25000/month for supervisor. total fund requirement towards salaries of these vacant posts calculated as Rs. 3981 crore. however, component wise break up of iCds allocation in Fy 2012-13 does not mention about actual funding for salaries of Cdpos/supervisors.

6. Construction cost of AWC: As per the Annual progress report (iCds & We) 2012-13 in rajasthan, 16388 AWCs are running in rented building for which establishment cost of rs. 4.5 lakh per AWC has to be provided under universalization of iCds. government of india has targeted construction of 2 lakh AWCs in 12th Five year plan from iCds funds in all over india. For the remaining AWCs in all india running in rented building, the planning Commission has to issue directives to leverage funds from other sources like BrgF, msdp, mgnregA, ACA, 13th Finance Commission and other similar schemes. the total requirement for construction of building for all 16388 AWCs



calculated as rs. 737.46 crore against which only rs. 18.67 crore has been provided in 2012-13. there is a shortfall of rs. 718.79 crore in Fy 2012-13.

5.3.3 Actual Allocation vs. spending in rajasthan

As described in the section above, there has been a gap between the fund requirement on overall iCds in rajasthan as well as on important components/interventions and the actual allocations in Fy 2013-14. in this section, one can see that the spending has been much lower than whatever was allocated. there are a number of reason impeding proper utilization of fund and smooth implementation of the programme iCds. one of the major reasons has been the significant shortfall of human resources in rajasthan. there is a systemic weakness that hampers various activities including

Figure 5.4: Fund Requirement vs. Actual Allocation in Rajasthan (Rs. in Crore)

0

500

1000

1500

2000

2500

2089.07

1244.22

2098.3

1408.11

2295.24

1725.68

FY2014-15FY2013-14FY2012-13


implementation, planning, monitoring, reporting, and training. There is deficiency in planning because unlike ssA, there is no systematic preparation of Annual Work plan and Budget under iCds for which no systematic work plans are submitted while asking for the financial requirement.

1. An amount of rs. 84.49 crore for iCds in rajasthan, that is 7.1 per cent, remained unspent in Fy 2011-12 whereas the Fy 2012-13 shows a huge under spending of available fund by rs. 631.04 crore which is more than 45 per cent of available resources.

2. looking at the component wise breakdown, one can notice huge under spending on important components as well as underutilization of total iCds fund. For example, supplementary nutrition programme is an important component under iCds that

year Allocation (RE) Expenditure (AE) Amount unspent

2011-12 1186.45 1101.96 84.49 (7.1%)

2012-13 1390.92 759.88 631.04 (45.4%)

Table 5.3: under utilisation/over utilization of Allocated Fund in Rajasthan9 Rs. In Crore


124

experienced under utilization of over 19 per cent of allocation in 2011-12 and 47 per cent in 2012-13.

3. rs. 41.44 crore has been spent towards honorarium to Anganwadi helpers in 2011-12, and it has been zero in the subsequent year indicating that the AWh posts must have been vacant leaving chances to hamper implementation at AWC level.

Fig 5.5: Fund Allocation unspent, an Average of 2011-12 & 2012-13 (In Percentage)

0 10 20 30 40 50 60

ICDS general

Supplementary Nutrition

SABALA

training Programme

Honorarium to AWC

Construction of AWC

ICDS X:State's share 11.2

51.9

7.4

55.8

30.7

33.2

8.6

4. Allocated fund for training programme has not been spent optimally in both the years despite huge need of training to AWW and supervisors in rajasthan. An average of 55.8 per cent of fund towards training programme remained unspent between 2011-12 and 2012-13.

5. on an average 30.6 per cent of fund allocated for sABAlA and 51.9 per cent of fund allocated towards construction of AWC remained unspent.



ENdNOTES

1World population prospects 2008

2Annual health survey 2011 - 12 Fact sheet by goi; web: http://www.censusindia.gov.in/vital_statistics/

AhsBulletins/Ahs_Factsheets_2011_12.html

3seven services under iCds includes i) supplementary nutrition for children below six, adolescent girls, pregnant & nursing women; ii) growth monitoring; iii) nutrition and health Counseling; iv) immunization to infants and pregnant women; v) Basic health Care to children under six, antenatal care of expected mothers and postnatal care to nursing mothers; vi) referral services to refer sick and malnourished children to phCs and vii) pre-school education to 3- 6 years age group

4report of the inter ministerial group on iCds restructuring 2011, planning Commission of india

5http://wcd.nic.in/icdsimg/Qpr0313-for-website-2-8-2013.pdf

6expenditure volume ii, ministry of women and child development, government of india

7plan expenditure details for 2012-13 to 2014-15, social security and Welfare department. government of Bihar

8ibid

9Annual progress report (iCds & We), 2012-13, WCd, rajasthan


126

integrated Child development scheme (iCds)


INTEgrATEd ChIld PrOTECTION SChEmE (ICPS) BooK iV



128

CONTENTS

1. Introduction..................................................................... 133

1.1 structure of iCps .........................................................................................133

1.2 Funding pattern for iCps ...........................................................................136

2. Progress under ICPS ......................................................137

3. Component – Wise Costing under ICPS - Fund Requirement Vs. Actual Allocation: Example of Bihar and Rajasthan .................................. 138

3.1 total Fund requirement Component-Wise for Bihar and rajasthan ...........................................138

3.2 detailed Fund requirement Component-Wise for iCps in Bihar .........................................................................................140

3.2.1 state Child protection society (sCps)-BihAr ............................................140

3.2.2 state project support unit (spsu) – BihAr ...............................................140

3.2.3 district Child protection units (dCpu) – Bihar ........................................142

3.2.4 open shelter – Bihar ........................................................................................143

3.2.5 special Adoption Agency (sAA) – Bihar ........................................................144

3.2.6 Children/observation/special homes – Bihar .............................................145

3.2.7 Child Welfare Committees (CWC) – Bihar .................................................147

3.2.8 Juvenile Justice Board (JJB) – Bihar .................................................................149

3.3 detailed Fund requirement Component-Wise for iCps in rajasthan ................................................151

3.3.1 state Child protection society (sCps)-rAJAsthAn ................................151

3.3.2 state project support unit (spsu) – rAJAsthAn ..................................152

3.3.3 district Child protection units (dCpu) – rAJAsthAn .........................153

3.3.4 open shelter – rAJAsthAn ..........................................................................154


130

3.3.5 state Adoption resource Agency (sArA) – rAJAsthAn .......................155

3.3.6 Children/observation/special homes – rAJAsthAn ..............................156

3.3.7 Child Welfare Committee (CWCs) – rAJAsthAn ..................................159

3.3.8 Juvenile Justice Board (JJBs) – rAJAsthAn ................................................161

4. unit Cost Analysis of selected component (Child Friendly Environment) under ICPS derived from Experiential Field Study ..............163

5. Extent and quality of Funding for Integrated Child Protection Scheme(ICPS) ...............164

5.1 Funding for iCps in All india ......................................................................164

5.2 Funding for iCps in Bihar ...........................................................................165

5.2.1 overall allocation on iCps in Bihar ...................................................................165

5.2.2 outlays across service structure/components of iCps in Bihar .................165

5.2.3 requirement vs. Allocation in iCps in Bihar ....................................................167

5.2.4 Allocation vs. spending in iCps in Bihar ...........................................................168

5.3 Funding for iCps in rajasthan ...................................................................169

5.3.1 overall allocation on iCps in rajasthan ...........................................................169

5.3.2 spending across the support structure/components of iCps in rajasthan 169

5.3.3 requirement vs. Allocation in iCps in rajasthan ............................................171

5.3.4 Allocation vs. spending in iCps in rajasthan....................................................172

table

table 3.1 : total fund requirements and actual allocation on different components of iCps, state wise .................................................................................................................139

table 3.2: recurring expenditure on sCps in Bihar .....................................................................140

table 3.3: recurring expenditure spsu in Bihar ...........................................................................141

table 3.4: recurring expenditure on dCpu in Bihar ...................................................................142

table 3.5: open shelter for a unit of 25 Children in Bihar......................................................143

table 3.6: special Adoption Agency (sAA) for a unit of 10 Children in Bihar .......................144

table 3.7: maintenance of an existing home with 50 children in Bihar ...................................146

table 3.8: maintenance grant for an existing CWC – Bihar......................................................148

table 3.9: maintenance grant for an existing JJB – Bihar ............................................................150

table 3.10: recurring expenditure on sCps in rajasthan ...........................................................151

table 3.11: recurring expenditure spsu in rajasthan .................................................................152

table 3.12: recurring expenditure dCpu rajasthan ...................................................................153

table 3.13:open shelter for a unit of 25 Children in rajasthan...............................................154

table 3.14: special Adoption Agency (sAA) for a unit of 10 Children in rajasthan .............155

table 3.15.a: maintenance of an existing home with 50 children in rajasthan ......................157

table 3.15.b: Construction and maintenance of a new home with 50 children in rajasthan ..............................................................................................158

table 3.16: maintenance grant for An existing CWC – rajasthan ...........................................160

table 3.17: maintenance grant for An existing JJB – rajasthan .................................................162

table 4.1: Creating and maintaining a Child Friendly environment ...........................................163

table 5.1: Budget Allotted for iCps (Central & state share) in Bihar ......................................166

table 5.2: .............................................................................................................................................168

table 5.3: Budget Allotted for iCps (Central & state’s share) in rajasthan ............................170

table 5.4: under utilisation of allocated fund in rajasthan .........................................................172


132

Figure

Figure 5.1: Fund allocation in iCps, All india ...................................................................................164

Figure 5.2:Fund allocations in iCps, Bihar .......................................................................................165

Figure 5.3:requirement vs. allocation for iCps in Bihar, Fy 2013-14 .......................................168

Figure 5.4:Fund allocations in iCps, rajasthan ...............................................................................169

Figure 5.5: requirement vs. Allocation for iCps in rajasthan, Fy 2013-14 .............................172



1. INTrOduCTION despite a number of conventions, laws and policies put in place promising respect for children’s rights, their protection and well being, there has not been much improvement in the lives of children in india. the children continue to be deprived of their rights, abused and exploited. incidences of abuse, exploitation faced by children are rampant as is evident through the media reports. unfortunately, exact and precise data on children in difficult circumstances is difficult to figure out as in most of the cases, exploitation of children go unreported and under recorded.

in order to provide for care and protection of all the children in conflict with law and children in need of care and protection, the ministry of Women and Child development has combined its existing different child protection schemes under one integrated scheme titled “integrated Child protection scheme (iCps)”. the core objective of iCps is to contribute to the improvement and well being of children in difficult circumstances as well as to reduce vulnerabilities to situations and actions that lead to abuse, neglect, exploitation, abandonment and separation of children. As per this scheme this objective is planned to be achieved by (i) improving access to and quality of child protection services; (ii) raising public awareness about the reality of child rights, situation and protection in india; (iii) clearly articulating responsibilities and enforced accountability for child protection (iv) establishing and functioning structures at all government levels for delivery of statutory and support services to children in difficult circumstances and (v) introducing operational and evidence based monitoring and evaluation systems.

TARgET gRouPS

a) Juvenile in conflict with law is one who is alleged to have committed an offence.

b) Child in contact with law is one who has come in contact with the law either as victim or as a witness or due to any other circumstance.

c) Child in need of care and protection (as defined in the JJ Act )

d)\ Any other vulnerable child (including but not limited to): Children of migrant families, children of socially marginalized groups, exploited/trafficked drug-affected children, children of prisoners/ women in prostitution and children affected / infected with hiV/Aids.

1.1 Structure of ICPS

to ensure effective service delivery at all level, iCps has been planned to be implemented in a mission mode and accordingly Central, state, regional and district bodies have been set up as fundamental units for its implementation.

Service delivery structure at State and District level

state Child protection society (sCps) the state society at present is consisting of the technical and support staff such as:

i) programme manager (CnCp),

ii) programme manager (training, ieC & Advocacy),

iii) Programme officer (CNCP),

iv) Programme Officer (JCL),

v) Programmer Officer (Training),

vi) Programme officer (IEC & Advocacy),

vii) Accountant,

viii) Account Officer and four Data Entry operators.

State Project Support unit (SPSu) – the technical staff to support the state society as well as monitor activities of the society consists of the following:


134

i) programme manager (1),

ii) Programme Officer (2),

iii) Administrative Officer,

iv) Account officer,

v) Accountant and

vi) Computer operators (2).

State Adoption Resource Agency (SARA) - the team consists of:

i) programme manager,

ii) Programme Officer,

iii) programme Assistant and

iv) Account Assistant.

District Child Protection unit: the team consists of:

i) District Child Protection Officer (dCpo-Child protection),

ii) Protection officer (Institutional Care),

iii) two social Workers,

iv) one Counselor,

v) data entry operator,

vi) two outreach workers,

vii) Protection officer (non-institutional care),

viii) Legal officer,

ix) Accountant, and

x) data analyst.

Care, Support & Rehabilitation Service

Emergency outreach services through a Mother ngo-ChIlDlInE: At present Childline india Foundation (CiF) is the only ‘MOTHER NGO’ managing this service as Child Line. Under ICPS, at present ‘Child line India Foundation (CiF)’ has been given the status of a ‘Mother NGO’ for running Childline Service in the country. the scheme aims to strengthen the capacity of ‘Mother NGO’ by supporting its regional Centres, as required, besides supporting its headquarters in the Country. the Child line program at the City level comprises of the City level Advisory Board (CAB), one nodal organisation and one Collaborative organisation, whereas at the district level Childline programme comprises of the district level Advisory Board (dAB), one nodal organisation, one Collaborative organisation and six district sub-Centres.

open shelters: open shelters in urban and semi-urban areas cater to all children in need of care and protection particularly beggars, street and working children, rag pickers, small vendors, street performers, orphaned, deserted, trafficked and run-away children, children of migrant population and any other vulnerable group of children. the fund sharing pattern of Centre:ngo is 90:10 and the staff members in an open shelter consists of i) project Coordinator cum Counselor, ii)social worker, iii) Care giver cum bridge Course educator, iv) outreach Worker and v) helper.



Family based Non-Institutional Care

The ‘Family based non-institutional care’ component under iCps consists of i) sponsorship & Foster care, ii) After care, iii) Adoption Coordinating Agency (ACA) and iv) state Adoption Agencies (sAA) that can be government run as well as ngo run. Adoption procedures are being carried out by ACA in the state which is consisting of one programme Coordinator, 2 social Workers and 1 data entry operator.

Statutory Support System

• Child Welfare Committees (CWCs): the Juvenile Justice (Care and protection of Children) Amendment Act, 2006 makes it mandatory to establish one Child Welfare Committee in each district as the final authority to dispose of cases for the care, protection, treatment, development and of children in need of care & protection. CWC in each district, as envisaged in the scheme consists of a Chairperson and 5 members.

• Juvenile Justice Boards (JJB): the Juvenile Justice (Care and protection of Children) Amendment Act, 2006 makes it mandatory to have one Juvenile Justice Board in each district to deal with matters relating to juveniles in conflict with law. The board in each district, as envisaged in the scheme, consists of a principal judicial magistrate and 2 members.

Fund towards the statutory support services in both Bihar and rajasthan has been under two components viz., i) Construction and maintenance cost of new CWCs and JJBs; ii) maintenance grant for existing CWC and JJB.

1. Special Juvenile Police units (SJPus): the Juvenile Justice Act, 2000 provides for setting up special Juvenile police units in every district and city to coordinate and upgrade the police interface with children. All the police officers, designated as juvenile/child welfare officers in the district or city, are members of the sJpu.

Institutional Services

Children homes: As envisaged in the JJ Act and effective iCps implementation, children in need of care and protection who enter into the JJ system through Child Welfare Committee (CWC) are to be placed in to Children home during pendency of any enquiry or long-term care, treatment, education, training, development and rehabilitation.

observation homes: According to the JJ Act, children in conflict with law who enter the juvenile justice system through the Juvenile Justice Boards (JJBs) during the pendency of any inquiry are kept in the observation homes for not more than 6 months ideally.

Special homes: Children in conflict with the law who enter the juvenile justice system through the Juvenile Justice Boards (JJBs) are placed in the special home for long term rehabilitation and protection.

open Shelter home: under the provision of JJ Act, reputed ngos recognized by state government who are running shelter home for street children can provide day and night shelter facilities and support services for children for a temporary period.


136

1.2 Funding pattern for ICPS:

iCps has to be implemented through the state governments with financial assistance provided by the government of india in two installments to the state Child protection societies of respective states. the ministry of Women and Child development and the state government transfer their share of head-wise/component wise funds directly to the bank account maintained in the name of the society. the state society in turn transfers head wise grant-in-aids to the district Child protection societies (dCps) in the bank account maintained in the name of district societies of respected districts. under the care, support and rehabilitation services of iCps budget, voluntary organizations/fit institutions registered under the Act are provided grant-in-aid in the name of the respective ngos running shelter homes for street children.

Funds are disbursed from the Childline india Foundation (CiF), mumbai to the organizations delivering services in the states in the name of collaborative, nodal and support organizations/district sub centers. For existing organizations delivering Childline services, the fund sanctioned every year consists of recurring expenditure such as, salaries, administrative costs etc. whereas for newly established Childline, funds consists of both recurring and non-recurring expenditure towards establishment of the service.

the scheme sprovides two types of grants for setting up CWCs and JJBs viz,

i) Construction and maintenance grant for new CWC/JJB and

ii) maintenance grant for existing CWC/JJB. under the construction and maintenance grant, the scheme envisages to support state government in construction of a new accommodation for the CWCs; whereas under the maintenance grant support is provided for day to day functioning of the CWCs only. recurring and non-recurring funds for CWC and JJB of respective districts are disbursed through the district societies.

Budget for institutions (Children, observation and special homes) are disbursed from Juvenile Justice department in different heads viz. foods, clothing, sanitary etc. and separate head of accounts are maintained to report the department back with expenditure details. proposals on quarterly requirements (based on children’s strength) sent to dept according to which sanction orders are provided by dept. to the District Treasury Officer. The DTO gives authorization to the sub-treasury office of the home providing permission for expenditure. Accordingly, the sanction order along with the bills provided by suppliers/contractors is produced to the department. the dept. then sanctions in the name of drawing & disbursing Officer (DDO) against the bills of expenditure. superintendent, who is the ddo, in turn gives the cheques to the contractors/ suppliers.



2. PrOgrESS uNdEr ICPS1

Although, the mou to implement and carry out activities under iCps has been signed for Bihar and rajasthan in 2010, the implementation has not yet gained momentum. the district societies are already structured in both Bihar and Rajasthan, but field observation by organizations working for protection of child rights in the sample states reveal that none of the district societies are optimally functional. iCps has not achieved anything so far except for the orientation/training programmes and formation of dCpu in the districts.

Present status of ICPS implementation in the States of bihar and rajasthan

1. mou to implement and carry out all activities under iCps, signed on 2010 in Bihar and rajasthan

2. rajasthan state Children protection society (rsCpC) registered in February 2011

3. district Child protection unit (dCpu) formed in 38 districts of Bihar and 33 districts of rajasthan

4. CWCs in Bihar: 32 (6 CWC still to be formed), CWCs in rajasthan: 33

5. JJBs in Bihar: 38; JJBs in rajasthan: 33

6. staff vacancies: in Bihar, only 2 out of 13 staff positions of state Child protection society (sCps) and 66 out of 456 positions of district Child Protection Unit (DCPU) was filled

7. number of institutions:

In bihar

- 14 homes

• 2 Children home for girls and 1 Children home for boys,

• 1 Special Home for boys;

• 10 Observation Home for boys

- 11 open shelter by recognized ngos

- 2 Special Adoption Agencies

In rajasthan

- 78 homes (government and ngo run)

• 5 children home Government run

• 27 Observation-cum-Children Home for boys and girls

• 3 OH for Boys and 4 OH for girls

• 39 Children home run by NGOs

- 20 open shelters by recognized ngos

- 33 Special Adoption Agencies


138

3. Component – Wise Costing under ICPS - FuNd rEquIrEmENT vS. ACTuAl AllOCATION

in this section component wise fund requirement has been calculated taking the unit cost as per the revised financial norms2 of different components approved by ministry of Women and Child development, which is to be applicable from 1st April 2014. total budgetary requirement based on the revised unit cost can therefore be calculated with the actual allocation provided in a particular years, Fy 2013-14 for Bihar and rajasthan for which data was available.

3.1Total Fund requirement Component-wise for bihar and rajasthan

table 3.1 provides an overall estimate of fund requirement on different service structures of iCps in both Bihar and rajasthan based on the revised unit cost norms by the government and the actual allocations for the components in Fy 2013-14, thereby calculating the overall shortage of fund under iCps in Bihar and rajasthan.

1. total fund requirement taking up all the components under iCps in Bihar calculated in accordance with the revised cost norms is rs. 5309.43 lakh.

a. Actual allocation for iCps as a whole in Bihar stands at rs. 1324.41 lakh in Fy 2013-14. therefore, there is a resource gap of rs. 3985.02 lakh in Bihar in the Fy 2013-14.

b. Actual Allocation for iCps in Bihar, as mentioned in the detailed demand for grants stands at rs. 4050 lakh. therefore, there is a shortfall of rs. 1259.43 lakh for iCps in Bihar in Fy 2014-15.

2. total fund required for all the components under iCps in rajasthan as per the revised unit cost of goi is calculated as rs. 9912.66 lakh.

a. An amount of rs. 3737.86 lakh was actually provided for iCps as a whole in the Fy 2013.14. therefore, there is a shortfall of rs. 6174.80 lakh in the Fy 2013-14 in rajasthan.

b. mentioned in the demand for grants, actual allocation for iCps as a whole stands at rs. 3714.16 lakh in Fy 2014-15. therefore, there is a shortfall of rs. 6198.50 lakh for iCps in rajasthan in Fy 2014-15.

3. Allocation for emergency outreach service/Childline has not been mentioned in Bihar and rajasthan, therefore Child line services could not be taken into table 3.1. however, as per the revised financial norms under ICPS, expenditure suggested for nodal, Collaborative, support Organisations and district sub centers of ‘Mother ngos’ are as under –

a. recurring and non-recurring expenditure as per iCps revised guideline is calculated as rs. 4.80 lakh per annum for a nodal organisation.

b. recurring and non-recurring expenditure as per iCps revised guideline is calculated as rs. 17.46 lakh per annum for a Collaborative organisation.

c. recurring and non-recurring expenditure as per iCps revised guideline is calculated as rs. 3.89 lakh per annum for a support organisation.

d. recurring and non-recurring expenditure as per iCps revised guideline is calculated as rs. 6.13 lakh per annum for a district sub center.



sl.

no

Com

pone

nts

no

of

unit

Cos

t

per

unit

Budg

etar

y

req

uire

men

t

per

annu

m

Act

ual

Allo

catio

n in

Fy

201

3-14

res

ourc

e

gap

no

of

unit

Cos

t

per

unit

Budg

etar

y

req

uire

men

t

per

annu

m

Act

ual

Allo

catio

n

in F

y

2013

-14

res

ourc

e g

ap

BIh

AR

RA

JAST

hA

n

1st

ate

Chi

ld p

rote

ctio

n so

ciet

y (s

Cps

)1

226.

822

6.78

37.0

418

9.74

122

6.8

226.

7871

.26

155.

52

2st

ate

Chi

ld p

rote

ctio

n u

nit

(sC

pu)

144

844

835

.93

412.

071

448

448

044

8

3d

istr

ict

Chi

ld p

rote

ctio

n u

nit

(dC

pu)

3857

.17

2172

.46

458.

8717

13.5

933

57.1

718

86.6

188

1.1

1005

.51

4st

ate

Ado

ptio

n r

esou

rce

Age

ncy

(sA

rA

)1

22.0

522

.05

17.5

4.55

122

.05

22.0

57.

714

.35

5o

pen

shel

ters

for

a u

nit

of 2

5 C

hild

ren

925

.04

225.

3872

.22

153.

1620

25.0

443

0.14

186.

5124

3.63

6st

ate

Ado

ptio

n A

genc

y (s

AA

) fo

r a

uni

t of

10

Chi

ldre

n 2

exi

stin

g17

.85

173.

842

.66

131.

1433

17.8

553

9.7

256.

0528

3.65

7m

aint

enan

ce o

f ins

titut

ions

/h

omes

with

50

child

ren

28

gov

t. ru

n17

.85

173.

842

.66

131.

1433

17.8

553

9.7

256.

0528

3.65

8C

onst

ruct

ion

and

mai

nten

ance

of

inst

itutio

ns/h

omes

with

50

child

ren

……

……

…20

131.

326

25.8

250.

8223

74.9

8

9m

aint

enan

ce g

rant

s fo

r ex

istin

g C

WC

s38

11.8

244

9.35

165.

6328

3.72

3311

.82

390.

2315

6.42

233.

81

10m

aint

enan

ce g

rant

s fo

r ex

istin

g JJB

s38

9.42

358.

1511

3.87

244.

2833

9.42

311.

0311

6.82

194.

21

gr

An

d t

otA

l…

…

53

09.4

313

24.4

139

85.0

2…

…

99

12.6

637

37.8

661

74.8

Tabl

e 3.

1 : T

otal

Fun

d R

equi

rem

ents

and

Act

ual A

lloca

tion

on

D

iffer

ent

Com

pone

nts

of IC

PS,

Sta

te W

ise

(Rs.

in l

akh)


140

3.2 detailed Fund requirement Component-wise for ICPS in bihar

3.2.1 state Child protection society (sCps)-BihAr

1. total fund required for a unit of sCps as per the revised norms of different components stands at rs. 226.78 lakh in Bihar. the actual allocation as of Fy 2013-14 stands at rs. 37.04 lakh in Bihar. There is a resource gap of Rs. 189.74 lakh in Bihar in Fy 2013-14.

2. According to the 82nd pAB meeting held under the Chairpersonship of Additional secretary, ministry of Women & Child development for state of Bihar, in sCps, only 2 out of 13 position have been filled up and rest of the staff positions are still vacant. even if, we subtract the total salary component of the amount rs. 30.78 lakh, fund for the remaining components is far below the total requirement of resources.

3. the state representatives informed the government that due to lower salaries under

iCps, the attrition rate is high and people leave the position when they get a job with better salaries for which the state of Bihar suggested the government to increase salary and pay additional amount from state share to retain the staff. With the new revised salaries, it can be expected that the recruitment can be expedited helping smooth functioning of the scheme.

3.2.2 state project support unit (spsu) – BihAr

1. According to the minutes of 82nd meeting of pAB held in January 2014, pAB has approved for the recurring grants state project support unit (spsu) in the state of Bihar for 12 month of Fy 2013-14 w.e.f April 2013, whereas non recurring grants were provided at the time of constitution of spsu in Fy 2010-11.

2. total fund requirement as per the revised iCps norm to function the spsu calculated as rs. 448 lakh per annum. in Bihar, only rs. 35.93 lakh has been provided for spsu in Fy 2013-14. there is a resource gap of Rs. 412.07 lakh in Bihar.

Sl. no. Components Cost per month as per

govt. estimates/month

Budgetary Requirement per annum

1 Rent for office premise rs. 25000 per month 3000002 staff salary* rs.1,43,000 per month 3078000

3 travel allowance for dCps staff rs.15,00,000/year 15000004 Administrative expenses rs. 2,50,000/year 2500005 training Funds for organizing programmes at diff levels rs.20,00,000/year 20000006 research and documentation rs.750000 /year 7500007 Awareness generation through ieC ; media campaign rs. 20,00,000/year 20000008 giA for innovative project under iCps rs. 30,00,000/year 30000009 Contingency Fund(internet, hiring of vehicle, watchman etc.) rs. 8,00,000/year 80000010 After care Fund rs. 45,00,000/year 450000011 situational analysis rs. 30,00,000/year 4500000 totAl- sCps 22678000A sCps Budget requirement (rs. in lakh) 226.78B Actual allocation in Bihar in 2013-14 (rs. in lakh) 37.04C gap between fund requirement and actual allocation in Bihar (C=A-B), Fy 2013-14 (rs. in lakh) 189.74source: revised integrated Child protection scheme (iCps),ministry of Women & Child development, government of india; *Staff salary consists of the following staff position: i) Two Programme Manager, ii) Four Programme Officer, iii) One Accounts Officer, iv) One Accountant) Four Assistant cum Data Entry operator, vi) One Account Assistant

Table 3.2: Recurring Expenditure on SCPS in Bihar



Sl. no Components Cost per month as per

govt. estimates/month


1 Rent for office premise rs. 25000 per month 3000002 Staff salary* Rs.256500

per month1380000

3 travel allowance rs.7,00,000/year 7000004 Administrative expenses including taxi and staff/consultant hiring rs.7,00,000/year 7000005 training, capacity building , ieC and Advocacy, monitoring rs.12,00,000/year 12000006 Contingency Fund (internet, hiring of vehicle, watchman etc.) rs. 2,00,000/year 200000 totAl- sCps 22678000A spsu Budget requirement per annum (rs, in lakh) 448B Actual allocation in Bihar in 2013-14 (rs. in lakh) 35.93C gap between fund requirement and actual allocation in Bihar (C = A-B), Fy 2013-14 (rs. in lakh) 412.07source: revised integrated Child protection scheme (iCps),ministry of Women & Child development, government of india;*Staff salary consists of the following staff position: i) One Programme Manager, ii) Two Programme Officer, iii) One Administrative Officer, iv) One Assistant cum Computer operator

Table 3.3: Recurring Expenditure SPSu in Bihar


142

Sl. no.

Components Cost per month as per government estimates3


Fund requirement for 38 DCPus in Bihar

1 rent form hiring space at district level rs.15000/month 180000 68400002 staff salary* rs. 192250/month 2307000 876660003 travel allowance for dCps staff rs.37500/month 450000 171000004 Fund for repatriating children rs.4,00,000/year 400000 152000005 district sponsorship and Foster Care

Fundrs.10,00,000/year 1000000 38000000

6 Advocacy and awareness rs.2,00,00/year 200000 76000007 sensitization and capacity building of

police, pri memberrs.4,00,000/year 400000 15200000

8 Administrative expenses (water, electricity, postage, stationary, telephone with std, Xeroxing, etc.)

rs.1,80,000/year 180000 6840000

9 Contingency Fund (internet, hiring of vehicle, watchman, vocational training in home etc.)

rs.6,00,000/year 600000 22800000

totAl- dCpu 5717000 217246000 A Fund requirement for 38 dCpus in Bihar (rs. in lakh) 2172.46B Actual fund allocation for 38 dCpu in Bihar, Fy 2013-14 (rs. in lakh) 458.87C gap between fund requirement & actual allocation in Bihar (C=A-B), Fy 2013-14, (rs. in lakh) 1713.59source: revised integrated Child protection scheme (iCps),ministry of Women & Child development, government of india;*Staff salary consists of the following staff position: i) One District Child Protection Officer (DCPO),ii) One Protection Officers, Institutional Care, iii) One Protection Officer, Non-Institutional Care, iv) One Legal cum Probation Officer, v) One Counselor, vi) Two Social Worker, vii) One Accountant, viii) One Data Analyst, ix) One Assistant cum data entry operator, x)two outreach worker

3.2.3 district Child protection units (dCpu) – Bihar

1. unit cost for establishment of one district Child protection unit (dCpu) as per the government’s revised financial norm stands at rs. 57.17 lakh. the pAB under the ministry of women and child development approved recurring grants for 38 dCpus in Bihar.

2. According to the pAB meeting minute held in January 2014, only 66 out of 456 positions of DCPU staff in the state of Bihar have been filled up leaving a huge vacancy.

3. the total budgetary requirement for 38 dCpus in Bihar is calculated as rs. 2172.47 lakh. An amount of only rs. 458.87 lakh has been provided for iCps in Fy 2013-14. there is a resource gap of rs. 1713.59 lakh in Fy 2013-14 in Bihar.

Table 3.4: Recurring Expenditure on DCPu in Bihar



3.2.4 open shelter – Bihar

1. the state of Bihar requested grants for the 11 existing open shelters for the Fy 2013-14 under the iCps norms which were also supported in the Fy 2012-13, beside requesting for another 29 additional open shelters in the state.

however, out of these 11 shelters, 2 are yet to be started. pAB therefore approved recurring and non-recurring grants for 9 open shelters for Fy 2013-14. Approval of additional 31 open shelters is accorded for next financial year.

2. total fund requirement for 9 open shelters in Bihar stands at rs. 225.38 lakh per annum against which only rs. 72.22 lakh has been allocated in Fy 2013-14. therefore, there is a shortfall of rs. 153.16 lakh.

3. there are additional 31 open shelters for which approvals are accorded from next financial year, therefore from the next year there has to be approval for nonrecurring and recurring grants for 31 additional open shelters and recurring grants for 9 existing open shelter, which is calculated as rs. 956.23 lakh per annum.

Sl. no.

Components Cost per month as per government estimates

Budgetary Requirement per annum4

Budgetary Requirement for 9 open Shelters per annum

non recurring (one time grant)*1. Furniture including mattresses for children, 25 steel

lockers, cupboards, tables and chairs etc. 150000 1350000

2. two Computers with ups (including cost of software license) and one printer cum scanner

90000 810000

3. one Color television 15000 1350004. equipment for sports, entertainment, vocational training

and kitchen along with utensils, gas stove, water filter, etc. 250000 2250000

Total- Non-recurring 250000 2250000Recurring**

1. maintenance @ rs. 2000 per child per month (food, @ rs. 1400 and rs. 600 for clothing, medicine, soap, oil, etc.)

600000 5400000

2. rent for hired building or maintenance for self-owned building for: (a) open shelters

rs. 17,500/month 210000 1890000

(b) three Contact points rs.2,600/month 93600 8424003. Water and electricity charges rs. 2,600/month 31200 2808004. Contingencies (postage, stationary, telephone,

photocopy etc.)rs.2,600/month 31200 280800

5. transportation charges rs. 2,600/month 31200 2808006. miscellaneous for outings, books for library, play

materials, educational/sports equipments, etcrs. 4,000/month 48000 432000

7. staff salary*** 954000 8586000TOTAL RECURRING EXP- OPEN SHELTER 1999200 17992800Budget requirement for open shelter (recurring + non recurring) (rs. in lakh) 25.04

A. total Fund requirement for 9 open shelter in Bihar (rs. in lakh) 225.38B. Actual fund allocation for 9 open shelter in Bihar, Fy 2013-14 (rs. in lakh) 72.22C. gap between fund requirement and actual allocation (C=A-B) in Bihar Fy 2013-14 (rs. in lakh) 153.16source: revised integrated Child protection scheme (iCps), mWCd, government of india;* pAB approved non recurring grants for 9 open shelters.** recurring grants has been approved by pAB for 9 open shelters in Bihar*** staff salaries consists of funds for the staff positions, i) one project Coordinator cum Counsellor, ii) one social Worker, iii) two Care givers cum bridge course educators, iv) three outreach Workers and v) one helper for cleaning and cooking purposes

Table 3.5: open Shelter for a unit of 25 Children in Bihar


144

3.2.5 special Adoption Agency (sAA) – Bihar

1. According to the minutes of 82nd meeting of pAB under iCps held in January 2014, Bihar requested grants for 2 sAAs which were supported under iCps during 2012-13. the state has requested for 8 additional sAAs in Fy 2013-14 as per the iCps norm. however, for the Fy 2013-14, the pAB has approved recurring grants for only 2 sAAs including the staff salaries that were supported under iCps in last Fy as well. Additional grants for 8 new sAAs are to be provided for only 3 months for this financial year with effect from January 2014.

2. therefore, the calculation for sAA in Bihar is based on the recurring fund requirement towards

2 existing sAAs as well as non-recurring and recurring grants fund requirement for 2+8=10 government and ngo run sAAs. total fund requirements, therefore stands at Rs. 173.80 lakh per annum.

3. Actual allocation for sAA in Bihar in Fy 2013-14 in Bihar stands at rs. 42.66 lakh, leaving a resource gap of Rs. 131.14 lakh. however, the fund towards recurring and non-recurring fund for 8 ngo run sAAs approved by the pAB for Fy 2013-14 has been for 3 months only w.e.f. January 2014.

4. Fund allocation for 2 existing sAAs and 8 additional ngo run sAAs has to be Rs. 173.80 lakh per annum.

Sl. no.

Components Cost per month as per govt. estimates

Budgetary Requirement/SAA per annum5

Budgetary Requirement for 2 existing SAAs and 8 additional ngo run SAAs per annum

non recurring(one time grant) 1 one Computer with ups (including cost

of software license) and one printer cum scanner

45000 360000

2 Furniture including 10 cradles 150000 1200000 3 equipment for kitchen 40000 320000 total non-recurring 235000 1880000

Recurring** 4 staff salary* 1080000 10800000 5 maintenance grant for 10 children to

cover expenses on food, clothing, soap, oil, medicines, play materials, etc.

rs. 2000/child/month 240000 2400000

6 rent rs.12000/month 144000 14400007 payment of legal expenses to the

advocate engaged in adoption case in case the adoptive indian parents are not in a position to pay subject to a maximum of 10 children.

rs.2,600/child 26000 260000

8 Contingency rs.5,000/month 60000 600000 Total recurring 1550000 15500000

Budget requirement for one sAA (recurring + non recurring) (rs. in lakh) 17.85A. total Fund requirement for 2 existing and 8 additional sAAs in Bihar (rs. in lakh) 173.80B. Actual fund allocation for 2 existing and 8 additional sAAs in Bihar, Fy 2013-14 (rs. in lakh) 42.66C. gap between fund requirement and actual allocation in Bihar (C=A-B), Fy 2013-14 (rs. in lakh) 131.14source: revised integrated Child protection scheme (iCps),mWCd, government of india;*staff salaries consists of funds for the staff positions, i) one manager/Coordinator, ii) one social Worker cum early Childhood educator, iii) one nurse, iv) one doctor, v) six Aayas and vi) one Chowkidar

Table 3.6: Special Adoption Agency (SAA) for a unit of 10 Children in Bihar



3.2.6 Children/observation/special homes – Bihar

1. According to the document by ministry of Women and Child development, the state of Bihar had requested recurring grant for 14 homes (10 observation homes, 3 children’s homes and 1 special home) for the Fy 2013-14 for which grants were available in last Fy 2012-13 under the iCps norms. pAB also accorded in-principle approval for 14 additional government run homes (11 observation homes and 3 places of safety) subject to state government’s confirmation about their registration.

2. therefore, pAB has approved recurring grants for 14 existing and recurring as well as non-recurring grants for 14 additional government run children homes in Fy 2013-14. pAB also approved recurring as well as non-recurring grants for 6 ngo run homes in Bihar.

3. total fund required for running these 34 homes in Bihar (non-recurring grants for 14 additional government and 6 additional ngo run homes + recurring grants for 28 government run and 6 ngo runs homes), as per the iCps norms is calculated as Rs. 1228.76 lakh per annum. in Bihar, an amount of only Rs. 380.69 lakh has been provided in Fy 2013-14 towards maintenance grants for these homes. there was a resource gap of Rs. 848.07 lakh.

4. Additionally, pAB accorded approval of 16 additional ngo run Children homes besides the existing 6 homes for which fund were already allocated. So from the next financial year, if approval for these 16 additional Children homes are accorded, then number of total homes stands at 34+16 = 50 homes (government as well as ngo runs in Bihar).

a. total fund requirement will be calculated as: Rs. 2117.40 lakh in the Fy 2014-15 with non-recurring grants for 16 additional homes and

recurring grants for 34+16 = 50 homes.

b. in Fy 2015-16, total fund requirement for all 50 government as well as ngo runs homes calculated as Rs. 1807 lakh.


146

Sl. no.


Budgetary Requirement/home per annum6

Budgetary Requirement for 14 existing, 14 additional Children/observation/Special homes and 6 additional ngo runs Ch per annum

non recurring * 1 structural changes, up-gradation

of accommodation facilities and maintenance

750000 15000000

2 up-gradation of facilities like purchase/maintenance of television, Computers, Books and furniture, kitchen equipments, etc.

1190000 23800000

total- non-recurring 1,940,000 38,800,000Recurring**

3 maintenance (food, @ rs. 1400 and rs. 600 for clothing, medicine, soap, oil, etc.)

rs. 2000/child/month 1200000 40800000

4 Bedding including mattress, bed sheets, pillow, blanket, dari/mats, etc

rs. 800 per child/year for 50 children

40000 1360000

5 rent for hiring building for running Children’s home

rs. 35000/month 420000 14280000

6 Water and electricity charges rs. 10000/month 120000 4080000 7 Contingencies (internet, service of

watchmen, data entry operator etc.) 200000 6800000

8 transportation charges(incl. travel expenses for children for training/school, field visit, enquiries, production before CWC/JJB etc)

80000 2720000

9 miscellaneous for outings, books for library, play materials, educational/sports equipment, etc

rs. 5000/month 60000 2040000

10 staff salary*** 1494000 50796000 ToTAl RECuRRIng EXPEnDITuRE - hoME 3614000 122876000

Budget requirement for an institution/home (recurring + non recurring) (rs. in lakh) 55.54A. total Fund requirement for 28 government run Children/observation/ special homes

and 6 additional ngo runs Ch in Bihar per annum173.80

B. Actual fund allocation for 28 govt run Children/observation/ special homes and 6 additional ngo runs Ch in Bihar, Fy 2013-14 (rs. in lakh)

380.69

C. gap between fund requirement and actual allocation in Bihar (C=A-B), Fy 2013-14 (rs. in lakh)

848.07

source: revised integrated Child protection scheme (iCps),ministry of Women & Child development, govt of india;*one time grant for 14 additional govt and 6 additional ngo run homes in Bihar** recurring grants for 28 govt run Ch/oh/sh (14 existing +14 additional) and 6 additional ngo run Ch*** staff salaries consists of funds for the staff positions, i) one superintendent, ii) one Counselor, iii) one probation Officer/Child Welfare Officer/ Case Worker, iv) Two House Mother or House Father, v) One Paramedical staff, vi) One store-keeper cum Accountant, vii) one Cook, viii) one helper and ix) one housekeeper

Table 3.7: Maintenance of An Existing home with 50 children in Bihar



3.2.7 Child Welfare Committees (CWC) – Bihar

1. Maintenance of CWCs: According to the minuets of 82nd meetings of pAB held in January 2014, the state government representatives of Bihar informed that CWCs are constituted in all the 38 districts though appointment of Assistant cum data entry operator for CWC are under progress. pAB approved recurring grants for all 38 CWCs towards maintenance grants for the Fy 2013-14 which were also sanctioned for the last Fy 2012-13. this grant however does not include funds for the salary of Assistant cum computer operator.

2. total fund required towards maintenance of 38 CWCs in Bihar as calculated per the norms under iCps, stands at Rs. 449.35 lakh. Actual fund allocations for all 38 CWCs in Fy 2013-14 have been Rs. 165.63 lakh. there is a resource gap of rs. 284 lakh for 38 CWCs for the Fy2013-14

3. Construction of CWCs: Considering that none of the CWC has its own building/separate space to function, there is a need to construct rooms for 38 CWCs in Bihar. According to the revised iCps norms, each CWC should have fund for Construction of two rooms of 300 sq. feet each at rs. 1000 per sq feet, which means rs. 6 lakh per CWC per annum. Fund requirement towards construction of CWC stands at rs. 228 lakh for 38 CWCs in Bihar

4. Demand to be raised for 38 CWCs: Construction of 38 CWCs in Bihar has to be completed within the last 3 three years of the 12th Five year plan i.e 2014-15, 2015-16 and 2016-17. in 2014-15, 14 CWC needs to be constructed followed by 12 CWCs in 2015-16 and 12 CWCs in 2016-17 of the remaining 3 years of 12th plan.

a. Construction of 14 CWCs and rent for the remaining 24 CWCs (38-14=24) stands at rs.

84 lakh and of rs. 28.80 lakh respectively in the 1st year of remaining 3 years of 12th plan. Total Fund requirement (recurring and non-recurring) including this construction grant in the first year for all 38 CWCs calculated as Rs. 516.55 lakh

b. Construction of another 12 CWCs and rent for remaining 12 CWCs (24-12=12) stands at rs. 72 lakh and rs. 14.40 lakh respectively. total fund requirement in the 2nd year of remaining 3 years of 12th plan (recurring only, considering that all CWCs receives non-recurring grant in the 1st year) including these construction grant for all 38 CWCs calculated as rs. 451.20 lakh.

c. Construction of the remaining 12 CWCs stands at rs. 72 lakh in the 3rd year of remaining 3 years of the 12th plan. Therefore, the total fund requirement in the 3rd year for all 38 CWCs (recurring only) including this construction grant for all 38 CWCs calculated as Rs. 436.80 lakh.


148

Sl. no.


Budgetary Requirement per CWC/ annum7

Fund Requirement for 38 CWC /annum in Bihar towards maintenance

non recurring (one time grant)1 Furniture 50000 19000002 one Computer with Web Cam and ups

(including cost of software license) and one printer cum scanner

45000 1710000

3 Creating and maintaining a child friendly environment including painting of rooms, indoor games

7500 285000

total - non-recurring 102,500 3,895,000Recurring**


rs. 10,000 per month 120000 4560000

2 traveling/meeting allowance for Chairperson (12 meetings per month)

rs.1000 per sitting 144000 5472000

3 traveling/meeting allowance for 4 members (12 meetings per month)

rs.1000 per sitting per member

576000 21888000

4 salary of one Assistant cum data entry operator

rs. 9000 per month 108000 4104000

5 Child related expenses including medicine, transportation, food, etc. during the process of production of a child to the committee

rs. 6000 per month 72000 2736000

6 Contingency (water, electricity, telephone, stationary, photocopy, postage, local travel, etc.)

rs. 5000 per month 60000 2280000

ToTAl RECuRRIng EXP- Child Welfare Committee 1080000 41040000Budget requirement for maintenance of one CWC (recurring +non recurring) 55.54

A. total Fund requirement towards maintenance of 38 CWCs in Bihar per annum (rs. in lakh) 449.35B. Actual fund allocation towards maintenance of 38 CWCs in Bihar, Fy 2013-14 (rs. in lakh) 165.63C gap between fund requirement and actual allocation for 38 CWCs in Bihar (C=A-B), Fy

2013-14 (rs. in lakh)283.72

source: revised integrated Child protection scheme (iCps), ministry of Women & Child development, government of india

Table 3.8: Maintenance grant For An Existing Cwc – Bihar



3.2.8 Juvenile Justice Board (JJB) – Bihar

1. Maintenance of JJBs: According to the minutes of 82nd meetings of pAB held in January 2014, the state government representatives of Bihar informed that JJBs are constituted in all the 38 districts though appointment of Assistant cum data entry operator for JJB are under progress. pAB approved recurring grants for all 38 JJBs towards maintenance grants for the Fy 2013-14 which were also sanctioned for the last Fy 2012-13. this grant however does not include funds for the salary of Assistant cum computer operator.

2. total fund required towards maintenance of 38 JJBs in Bihar calculated as per the revised norms under iCps, stands at rs. 358.15 lakh. Actual fund allocations for all 38 JJBs in Fy 2013-14 have been rs. 113.87 lakh. there is a resource gap of rs. 244.28 lakh for 38 JJBs for the Fy2013-14.

3. Construction of JJBs: Considering that none of the JJB has its own building/separate space to function, there is a need to construct rooms for 38 JJBs in Bihar. According to the revised iCps norms, each JJB should have fund for Construction of two rooms of 300 sq. feet each at rs.1000 per sq feet, which means rs. 6 lakh per CWC/JJB per annum. Fund requirement towards construction of CWC and JJB stands at rs. 228 lakh for 38 JJBs in Bihar.

4. Demand to be raised for 38 JJBs: Construction of 38 JJBs in Bihar has to be completed within the remaining 3 three financial years of the 12th Five year plan. In the first year of the remaining 3 years of 12th five year Plan, 14 JJBs needs to be constructed followed by 12 JJBs in 2nd year and 12 JJBs in 3rd year of the next remaining 3 years of 12th plan.

a. Construction of 14 JJBs and rent for the remaining 24 JJBs (38-14=24) stands at rs. 84 lakh and of rs. 28.80 lakh respectively in the 1st

year of remaining 3 years of 12th plan. Total Fund requirement (recurring and non-recurring) in the first year for all 38 JJBs calculated as Rs. 425.35 lakh

b. Construction of another 12 JJBs and rent for remaining 12 JJBs (24-12=12) stands at rs. 72 lakh and rs. 14.40 lakh respectively. Total fund requirement in the 2nd year of remaining 3 years of 12th plan (recurring only, considering that all CWCs receives non-recurring grant in the 1st year) including these construction grant for all 38 JJBs calculated as Rs. 360 lakh.

c. Construction of the remaining 12 CWCs stands at rs. 72 lakh in the 3rd year of remaining 3 years of the 12th plan. Therefore, the total fund requirement in the 3rd year for all 38 CWCs (recurring only) including this construction grant for all 38 CWCs calculated as Rs. 345.60 lakh.


150

Sl no


Budgetary Requirement per JJB/ annum8

Requirement for 38 JJB/annum in Bihar

non recurring (one time grant)Furniture 50000 1900000Furniture and equipments 50000 1900000one Computer with Web Cam and ups (including cost of software license) and one printer cum scanner

45000 1710000

Creating and maintaining a child friendly environment including painting of rooms, indoor games

7500 285000

Total- Non-recurring 102,500 3,895,000Recurring**

rent for hiring building for running Children’s home

rs. 10,000 per month 120000 4560000

traveling/meeting allowance for 2 social workers (12 meetings per month)

rs.1000 per sitting per member

480000 18240000

salary of one Assistant cum data entry operator

rs. 9000 per month 108000 4104000

Child related expenses including medicine, transportation, food, etc. during the process of production of a child to the committee

rs. 6000 per month 72000 2736000

Contingency (water, electricity, telephone, stationary, photocopy, postage, local travel, etc.)

rs. 5000 per month 60000 2280000

ToTAl RECuRRIng EXP- JJB 840000 31920000

Budget requirement for a JJB (recurring + non recurring) (rs. in lakh) 9.42A. total Fund requirement towards maintenance of 38 JJBs in Bihar per annum (rs. in lakh) 358.15B. Actual fund allocation towards maintenance of 38 JJBs in Bihar, Fy 2013-14 (rs. in lakh) 113.87C. gap between fund requirement and actual allocation for 38 JJBs in Bihar (C=A-B), Fy 2013-

14 (rs. in lakh)244.28

Table 3.9: Maintenance grant For An Existing Jjb – Bihar



3.3 detailed Fund requirement Component-wise for ICPS in rajasthan

3.3.1 state Child protection society (sCps)-rAJAsthAn

1. total fund allocation for a unit of sCps as per the revised norms of different components

stands at rs. 226.78 lakh in rajasthan. the actual allocation as of Fy 2013-14 stands at rs. 71.26 lakh. There is a resource gap of Rs. 155.52 lakh in 2013-14.

Sl no

Components Cost per month as per govt. estimates/month


1 Rent for office premise rs. 25000 per month 3000002 staff salary* rs.1,43,000 per month 30780003 travel allowance for dCps staff rs.15,00,000/year 15000004 Administrative expenses rs. 2,50,000/year 2500005 training Funds for organizing programmes at diff levels rs.20,00,000/year 20000006 research and documentation rs.750000 /year 7500007 Awareness generation through ieC ; media campaign rs. 20,00,000/year 20000008 giA for innovative project under iCps rs. 30,00,000/year 30000009 Contingency Fund(internet, hiring of vehicle, watchman

etc.)rs. 8,00,000/year 800000

10 After care Fund rs. 45,00,000/year 450000011 situational analysis rs. 30,00,000/year 4500000 TOTAL- SCPS 22678000A. sCps Budget requirement (rs. in lakh) 226.78B. Actual allocation in rajasthan in Fy 2013-14 (rs. in lakh) 71.26C. gap between budget requirement and actual allocation in Bihar in Fy 2013-14 (rs. in lakh) 155.52source: revised integrated Child protection scheme (iCps),ministry of Women & Child development, government of india;*Staff salary consists of the following staff position: i) Two Programme Manager, ii) Four Programme Officer, iii) One Accounts Officer, iv) One Accountant) Four Assistant cum Data Entry operator, vi) One Account Assistant

Table 3.10: Recurring Expenditure on SCPS in Rajasthan


152

Sl no

Components Cost per month as per govt. estimates/month


1 Rent for office premise rs. 25000 per month 300000

2 staff salary* rs.256500 per month 1380000

3 travel allowance rs.7,00,000/year 700000

4 Administrative expenses including taxi and staff/consultant hiring

rs.7,00,000/year 700000

5 training, capacity building , ieC and Advocacy, monitoring

rs.12,00,000/year 1200000

6 Contingency Fund (internet, hiring of vehicle, watchman etc.)

rs. 2,00,000/year 200000

7 Awareness generation through ieC ; media campaign rs. 20,00,000/year 2000000

ToTAl- SCPS 22678000

A spsu Budget requirement per annum (rs. in lakh) 448

B Actual allocation in rajasthan in 2013-14 (rs. in lakh) 0

C gap between fund requirement and actual allocation in rajasthan in Fy 2013-14 (rs. in lakh) 448source: revised integrated Child protection scheme (iCps), mWCd government of india;*Staff salary consists of the following staff position: i) One Programme Manager, ii) Two Programme Officer, iii) One Administrative Officer, iv) One Assistant cum Computer operator

Table 3.11: Recurring Expenditure SPSu in Rajasthan

3.3.2 state project support unit (spsu) – rAJAsthAn

1. total fund requirement as per the revised iCps norm to function the spsu calculated as

rs. 448 lakh per annum. however, no grant was provided in rajasthan towards functioning of spsu in the Fy 2013-14. thus the resource gap for rajasthan is rs. 448 lakh.



3.3.3 district Child protection units (dCpu) – rAJAsthAn

1.unit cost for establishment of one district Child protection unit

(dCpu) as per the government’s revised financial norm stands at Rs. 57.17 lakh. The pAB under the ministry of women and child development approved recurring grants for 33 dCpus in rajasthan.

2. rajasthan on the other hand needs a total fund allocation of rs. 1886.61 lakh for 33 dCpus formed in the state as per the unit financial cost, component wise approved by the government. Against this requirement, only Rs. 881.10 lakh was provided under iCps as central grant as well as state’s share. There is a resource shortfall of Rs. 1005.51 lakh towards 33 DCPus in the Fy 2013-14 in Rajasthan.

Sl no

Components Cost per month as per govt. estimates9

Cost per month as per govt. estimates/month

Fund requirement for 33 DCPS in Bihar

recurring expenditure

1 rent form hiring space at district level rs.15000/month 180000 5940000

2 staff salary* 192250 2307000 76131000

3 travel allowance for dCps staff rs.37500/month 450000 14850000

4 Fund for repatriating children rs.4,00,000/year 400000 13200000

5 district sponsorship and Foster Care Fund rs.10,00,000/year 1000000 33000000

6 Advocacy and awareness rs.2,00,00/year 200000 6600000

7 sensitization and capacity building of police, pri member

rs.4,00,000/year 400000 13200000

8 Administrative expenses (water, electricity, postage, stationary, telephone with std, Xeroxing, etc.)

rs.1,80,000/year 180000 5940000

9 Contingency Fund (internet, hiring of vehicle, watchman, vocational training in home etc.)

rs.6,00,000/year 600000 19800000

ToTAl- DCPS 5717000 188661000

Fund requirement for a dCpu per annum (rs. in lakh) 57.17

A Fund requirement for 33 dCpus in rajasthan (rs, in lakh) 1886.61

B Actual fund allocation for 33 dCpu in rajasthan, Fy 2013-14 (rs. in lakh) 881.1

C gap between fund requirement and actual allocation in rajasthan (C=A-B), Fy 2013-14, (rs. in lakh)

1005.51

source: revised integrated Child protection scheme (iCps), ministry of Women & Child development, government of india;*Staff salary consists of the following staff position: i) One District Child Protection Officer (DCPO),ii) One Protection Officers, Institutional Care, iii) One Protection Officer, Non-Institutional Care, iv) One Legal cum Probation Officer, v) One Counsellor, vi) Two Social Worker, vii) One Accountant, viii) One Data Analyst, ix) One Assistant cum data entry operator, x)two outreach worker

Table 3.12: Recurring expenditure DCPu Rajasthan


154

3.3.4 open shelter – rAJAsthAn

1. in rajasthan, pAB approved recurring grants in Fy 2013-14 for 14 open shelters for which grants were provided in Fy 2012-13 under the iCps norms. Additionally, pAB approved recurring and non-recurring grants for 6 additional open shelters for the Fy 2013-14.

2. total fund requirements towards non-recurring as well as recurring grants of 6 open shelters and recurring grants for 20 open shelters in rajasthan amounts to Rs. 430.14 lakh per annum. An amount of only Rs. 186.51 lakh has been provided for open shelters in rajasthan in Fy 2013-14. therefore, there is a shortfall of Rs. 243.63 lakh.

Table 3.13: open Shelter for a unit of 25 Children in RajasthanSl no


Budgetary Requirement/open Shelter per annum10

Budgetary Requirement for 20 open Shelters per annum

non recurring (one time grant)* 1 Furniture including mattresses for children, 25

steel lockers, cupboards, tables and chairs etc. 150000 900000

2 two Computers with ups (including cost of software license) and one printer cum scanner

90000 540000

3 one Color television 15000 90000 4 equipment for sports, entertainment, vocational

training and kitchen along with utensils, gas stove, water filter, etc.

250000 1500000

Total Non-recurring 505,000 3,030,000Recurring**

5 maintenance @ rs. 2000 per child per month (food, @ rs. 1400 and rs. 600 for clothing, medicine, soap, oil, etc.)

rs.2000 x 25 children x12 months

600000 12000000

6 rent for hired building or maintenance for self-owned building for: (a) open shelters

rs. 17,500/month 210000 4200000

7 (b) three Contact points rs.2,600/month 93600 1872000 8 Water and electricity charges rs. 2,600/month 31200 624000 9 Contingencies (postage, stationary, telephone,

photocopy etc.)rs.2,600/month 31200 624000

10 transportation charges rs. 2,600/month 31200 624000 11 miscellaneous for outings, books for library,

play materials, educational/sports equipments, etc

rs. 4,000/month 48000 960000

totAl reCurring eXp- open shelter 1999200 39984000Budget requirement for open shelter (recurring + non recurring) (rs. in lakh) 25.04

A total Fund requirement for 9 open shelter in rajasthan (rs. in lakh) 430.14B Actual fund allocation for 9 open shelter in rajasthan, Fy 2013-14 (rs. in lakh) 186.51C gap between fund requirement and actual allocation in rajasthan (C=A-B), Fy 2013-14 (rs.

in lakh)243.63

source: revised integrated Child protection scheme (iCps),ministry of Women & Child development, govt of india;* pAB approved non recurring grants for 6 additional open shelter in rajasthan, so the calculation for non recurring fund requirement for rajasthan is for 6 open shelters only. ** recurring grants has been approved by pAB for 20 existing open shelters and 6 additional open shelters in rajasthan *** staff salaries consists of funds for the staff positions, i) one project Coordinator cum Counsellor, ii) one social Worker, iii) two Care givers cum bridge course educators, iv) three outreach Workers and v) one helper for cleaning and cooking purposes



3.3.5 state Adoption Agency (sAA) – rAJAsthAn

1. in rajasthan, pAB approved recurring grants for 21 government runs special Adoption Agencies (sAAs) for the Fy 2013-14 which was also supported under iCps during Fy 2012-13. pAB has also approved recurring and non-recurring grants for 12 new government run

sAAs from the Fy 2013-14 as requested by the state of rajasthan.

2. total fund requirements, therefore, for 21 existing sAAs and 12 new ngo run sAAs amounts to rs. 539.70 lakh per annum. the actual allocation for all 33 sAAs in rajasthan for the Fy 2013-14 stands at rs. 256.05 lakh. therefore, there is a resource gap of rs. 283.65 lakh.

Table 3.14: SPECIAl ADoPTIon AgEnCy (SAA) for a unit of 10 Children in Rajasthan

Sl no


Budgetary Requirement/SAA per annum

Budgetary Requirement for 33 SAAs per annum

non recurring for 12 new SAAs (one time grant) 1 one Computer with ups (including cost of

software license) and one printer cum scanner 45000 540000

2 Furniture including 10 cradles 150000 1800000 3 equipment for kitchen along with utensils, gas

stove, water filter, etc. 40000 480000

total non-recurring 235000 2820000Recurring for 21 existing & 12 new SAAs

4 staff salary 1080000 35640000 5 maintenance grant for 10 children rs. 2000/child/month 240000 7920000 6 rent (up to rs.12,000 p.m.) rs.12000/month 144000 4752000 7 payment of legal expenses to the advocate

engaged in adoption case rs.2,600/child 26000 858000

8 Contingency (water, electricity, telephone, stationary, photocopy, postage, etc.)

rs.5,000/month 60000 1980000

Total recurring 1550000 51150000

Budget requirement for one sAA (recurring + non recurring) (rs, in lakh) 17.85A total Fund requirement for 33 sAAs in rajasthan per annum (rs, in lakh) 539.70B Actual fund allocation for 33 sAAs in rajasthan, Fy 2013-14 (rs. in lakh) 256.05C gap between Fund requirement and Actual Allocation for 33 sAAs in rajasthan (C=A-B),

Fy 2013-14 (rs. in lakh)283.65

source: revised integrated Child protection scheme (iCps),ministry of Women & Child development, govt of india;*staff salaries consists of funds for the staff positions, i) one manager/Coordinator, ii) one social Worker cum early Childhood educator, iii) one nurse, iv) one doctor, v) six Aayas and vi) one Chowkidar


156

3.3.6 Children/observation/special homes – rAJAsthAn

1. Maintenance of homes/Institutions: pAB approved recurring grants for 39 government run homes for which grant was released during the FY 2012-13 as per actual beneficiaries. PAB additionally approved up gradation of 2 homes providing non recurring grants for the Fy 2013-14. Also 30 ngo runs homes are approved by the pAB for which grants have been released during 2012-13. pAB also approved recurring and non-recurring grants for 9 additional ngo run homes in Fy 2013-14.

2. therefore, the total fund requirement for towards recurring grant of 39 government run and 39 ngo run homes and non-recurring grants for 11 homes stands at rs. 3032.32 lakh. An amount of rs. 1811.18 lakh has been provided in Fy 2013-14 towards maintenance grants of homes under iCps in rajasthan. there is a resource gap of Rs. 1221.14 lakh per annum.

3. Construction of homes: in Fy 2013-14, fund has been provided in rajasthan towards construction of 20 homes in rajasthan. the total fund requirement towards Construction and maintenance grant for 20 homes in rajasthan (non-recurring grants for all 20 home) accounts for rs. 2625.80 lakh. An amount of rs. 250.82 lakh was provided in the Fy 2013-14. still there is a need for rs. 2374.98 lakh for all 20 homes towards Constructions and maintenance grants.



Table 3.15.a: Maintenance of An Existing home with 50 children in Rajasthan

Sl no


Budgetary Requirement/home per annum12

Budgetary Requirement for maintenance of 78 government run and ngo run Children/observation/Special homes per annum

non recurring * 1 structural changes, up-gradation of

accommodation facilities and maintenance 750000 8250000

2 up-gradation of facilities like purchase/maintenance of television, Computers, Books and furniture, kitchen equipments, etc.

1190000 13090000

total- non-recurring 1,940,000 21,340,000Recurring**

3 maintenance(food, @ rs. 1400 and rs. 600 for clothing, medicine, soap, oil, etc.)

rs. 2000/child/ month 1200000 93600000


rs.800/child/year for 50 children

40000 3120000


rs.35000/month 420000 32760000

6 Water and electricity charges rs.10000/month 120000 9360000 7 Contingencies (internet, service of watchmen,

data entry operator etc.) 200000 15600000

8 transportation charges(including travel expenses for children for training/school, field visit, enquiries, production before CWC/JJB etc)

80000 6240000

9 miscellaneous for outings, books for library, play materials, educational/sports equipment, etc

rs.5000/month 60000 4680000

10 staff salary *** 1494000 116532000ToTAl RECuRRIng EXP- ChIlDREn/oBSERVATIon hoME

3614000 281892000

Budget requirement for one sAA (recurring + non recurring) (rs, in lakh) 17.85A total Fund requirement for 89 Children/observation/ special homes in rajasthan per

annum (rs. in lakh)3032.32

B Actual fund allocation for 89 Children/observation/ special homes in rajasthan, Fy 2013-14 (rs. in lakh)

1811.18

C gap between fund requirement and actual allocation in Children/observation/ special homes in rajasthan (C=A-B), Fy2013-14 (rs. in lakh)

1221.14

source: revised integrated Child protection scheme (iCps),ministry of Women & Child development, government of india;*one time grant for 2 government runs homes and 9 additional ngo runs homes in rajasthan** recurring grants for 39 government run Ch/oh/sh and39 additional ngo run Ch in rajasthan*** staff salaries consists of funds for the staff positions, i) one superintendent, ii) one Counselor, iii) one probation Officer/Child Welfare Officer/ Case Worker, iv) Two House Mother or House Father, v) One Paramedical staff, vi) One store-keeper cum Accountant, vii) one Cook, viii) one helper and ix) one housekeeper


158

Table 3.15.b: Construction And Maintenance of A new home With 50 Children In Rajasthan

Sl no


Budgetary Requirement/home per annum

Budgetary Requirement for maintenance of 20 Children/observation/Special homes per annum

non recurring 1 Cost of Construction- 8745 sq. ft rs.1000/sq. ft 8745000 174900000 2 Furniture including 60 beds (including 10

for sick room) for children, cupboards/steel lockers, tables and chairs for dining & class rooms, library & home staff, cupboards for library & staff, etc.

900000 18000000

3 buying books/audio-visual aids for library 75000 1500000 4 three Computers with ups (including cost of

software license) and one printer cum scanner cum fax

135000 2700000

5 two televisions (one for every 25 children) 30000 600000 6 equipments for kitchen and utensils including

gas stove and gas connection, water filter, etc. 50000 1000000

recurring expenditure (per annum) 9935000 198700000Total 9935000 198700000recurring expenditure (per annum)

7 maintenance (food, @ rs. 1400 and rs. 600 for clothing, medicine, soap, oil, etc.)

rs. 2000 per child per month

1200000 24000000


rs. 800 per child/year for 50 children

40000 800000

9 Water and electricity charges rs. 10000 per month 120000 2400000 10 staff salary* 1494000 29880000 11 transportation charges 80000 1600000 12 miscellaneous for outings, books for library, play

materials, educational/sports equipments, etcrs. 5000 per month 60000 1200000

13 Contingencies (internet, service of watchmen, data entry operator etc.)

200000 4000000

total 3194000 63880000ToTAl RECuRRIng EXP - ChIlDREn/oBSERVATIon hoME

13129000 262580000

Fund requirement for construction and maintenance of an institution/home (recurring + non recurring) (rs. in lakh)

131.29

A. total Fund requirement towards construction and maintenance of 20 Children/observation/ special homes in rajasthan per annum, (rs. in lakh)

2625.8

B. Actual fund allocation towards Construction of 20 Children/observation/ special homes in rajasthan, Fy 2013-14 (rs. in lakh)

250.82

C. gap between fund requirement and actual allocation towards construxtion of 20 homes in rajasthan (C=A-B), Fy 2013-14 (rs. in lakh)

2374.98

source: revised integrated Child protection scheme (iCps),ministry of Women & Child development, government of india;*staff salaries consists of funds for the staff positions, i) one superintendent, ii) one Counselor, iii) one probation Officer/Child Welfare Officer/ Case Worker, iv) Two House Mother or House Father, v) One Paramedical staff, vi) One store-keeper cum Accountant, vii) one Cook, viii) one helper and ix) one housekeeper



3.3.7 Child Welfare Committee (CWCs) – rAJAsthAn

1. Maintenance of CWC: pAB has approved recurring grants for all 33 existing Child Welfare Committees (CWC) for the Fy 2013-14 based on the actual number of sittings, no of members appointed except the salary of dAtA entry operator which was approved from the date of appointment provided by rajasthan and the rent component that was not requested by the state.

total fund requirements for all 33 CWCs as per the iCps norms in rajasthan stands at rs. 390.23 lakh in which rs. 356.40 lakh has been the recurring grants. subtracting the rent component of rs. 39.60 lakh and salary of data entry operator of rs. 35.64 lakh from the total recurring grant for all 33 CWCs, the amount calculated is Rs. 281.16 lakh. Against this requirement, the actual allocation is Rs. 156.42 lakh in Fy 2013-14. the resource gap for the Fy 2013-14 for all 33 CWCs in rajasthan excluding rent component and salary of data entry operators amounts to Rs. 124.74 lakh.

2. Construction of CWCs: Considering that none of the CWC has its own building/separate space to function in rajasthan, there is a need to construct rooms for 38 CWCs. According to the revised iCps norms, each CWC should have fund for Construction of two rooms of 300 sq. feet each at rs. 1000 per sq feet, which means rs. 6 lakh per CWC per annum. Fund requirement towards construction of CWC and JJB stands at rs. 198 lakh for 33 CWCs in rajasthan.

3. Demand to be raised for 33 CWCs: Construction of 33 CWCs in rajasthan has to be completed within the remaining 3 three financial years of the 12th Five year plan, 2014-15, 2015-16 and 2016-17. In the first year of the remaining 3 years of 12th five year Plan with 11 CWCs need to

be constructed followed by 11 CWCs in 2nd and 3rd year each.

a. Construction of 11 CWCs and rent for the remaining 22 CWCs (33-11=22) stands at rs. 66 lakh and of rs. 26.40 lakh respectively in the 1st year of remaining 3 years of 12th plan. Total Fund requirement (recurring and non-recurring) including this construction grant in the first year for all 33 CWCs in Rajasthan calculated as Rs. 443.03 lakh.

b. Construction of another 11 CWCs and rent for remaining 11 CWCs (22-11=11) stands at rs. 66 lakh and rs. 13.20 lakh respectively. Total fund requirement in the 2nd year of remaining 3 years of 12th plan (recurring only, considering that all CWCs receives non-recurring grant in the 1st year) including these construction grant for all 33 CWCs in Rajasthan calculated as Rs. 396 lakh.

c. Construction of the remaining 11 CWCs stands at rs. 66 lakh in the 3rd year of remaining 3 years of the 12th plan. Therefore, the total fund requirement in the 3rd year for all 33 CWCs (recurring only) in Rajasthan including this construction grant calculated as Rs. 382.80 lakh.


160

sl no. Components Cost per month as

per govt.estimates

Budgetary requirement per JJB/ annum13

requirement for 33 JJB/annum in Bihar

non recurring (one time grant)

1 Furniture 50000 1650000

2 one Computer with Web Cam and ups (including cost of software license) and one printer cum scanner

45000 1485000

3 Creating and maintaining a child friendly environment including painting of rooms, indoor games 7500 247500

Total- non-recurring 102,500 3,382,500

recurring

1 rent for hiring building for running Children’s home rs.10,000/month 120000 39600002 traveling/meeting allowance for Chairperson (12

meetings per month) rs.1000/sitting 144000 47520003 traveling/meeting allowance for 4 members (12

meetings per month)rs.1000/ sitting/member 576000 19008000

4 salary of one Assistant cum data entry operator rs. 9000/month 108000 35640005 Child related expenses including medicine,

transportation, food, etc. during the process of production of a child to the committee

rs. 6000/month72000 2376000

6 Contingency (water, electricity, telephone, stationary, photocopy, postage, local travel, etc.) rs. 5000/month 60000 1980000

ToTAl RECuRRIng EXPEnSES - Child Welfare Committee 1080000 35640000

Budget requirement for maintenance of one CWC (recurring + non recurring) (rs. in lakh) 11.82

A. total Fund requirement towards maintenance of 33 CWCs in rajasthan per annum (rs. in lakh) 390.23

B. Actual fund allocation towards maintenance of 33 CWCs in rajasthan, Fy 2013-14 (rs. in lakh) 156.42

C. gap between fund requirement and actual allocation for CWCs in rajasthan (C=A-B), Fy 2013-14 (rs. in lakh)

233.81

Table 3.16: Maintenance grant For An Existing Cwc – Rajasthan



3.3.8 Juvenile Justice Board (JJBs) – rAJAsthAn

1. Maintenance of JJBs: pAB has approved recurring grant for all 33 existing Juvenile Justice Boards (JJBs) for the Fy 2013-14 based on the actual no of sitting and members appointed except salary of data entry operator and the rent component.

therefore, the total fund requirement (recurring and non-recurring) for all 33 JJBs in rajasthan amounts to rs. 311.03 lakh. As the pAB has approved only recurring grant we can calculate whether the actual requirement is matching the actual allocation for the JJBs. recurring grants for all 33 JJBs in rajasthan subtracting the salary and rent component of rs. 35.64 amd rs. 39.60 lakh respectively, stands at rs. 201.96 lakh. Against this requirement, the actual allocation for the Fy 2013-14 in rajasthan has been only rs. 116.82 lakh. there is a resource gap of rs. 85.14 lakh excluding rent and salary of data entry operator in the Fy 2013-14.

2. Construction of JJBs: Considering that none of the JJB has its own building/separate space to function in rajasthan, there is a need to construct rooms for 38 JJBs. According to the revised iCps norms, each JJB should have fund for Construction of two rooms of 300 sq. feet each at rs. 1000 per sq feet, which means rs. 6 lakh per CWC/JJB per annum. Fund requirement towards construction of JJB stands at rs. 198 lakh 33 JJBs in rajasthan.

3. Demand to be raised for 33 JJBs: Construction of 33 JJBs in rajasthan has to be completed within the remaining 3 three financial years of the 12th Five year plan, i.e. 2014-15, 2015-16 and 2016-17. In the first year of the remaining 3 years of 12th five year Plan, 11 JJBs needs to be constructed followed by 11 JJBs in 2nd year and remaining 11 JJBs in 3rd year.

a. Construction of 11 JJBs and rent for the remaining 22 JJBs (33-11=22) stands at rs. 66 lakh and of rs. 26.40 lakh respectively in the 1st year of remaining 3 years of 12th plan. total Fund requirement (recurring and non-recurring) in the first year for all 33 JJBs calculated as Rs. 363.83 lakh.

b. Construction of another 11 JJBs and rent for remaining 11 JJBs (22-11=11) stands at rs. 66 lakh and rs. 13.20 lakh respectively. total fund requirement in the 2nd year of remaining 3 years of 12th plan (recurring only, considering that all JJBs receives non-recurring grant in the 1st year) including these construction grant for all 33 JJBs in rajasthan calculated as rs. 316.80 lakh.

c. Construction of the remaining 11 JJBs stands at rs. 66 lakh in the 3rd year of remaining 3 years of the 12th plan. therefore, the total fund requirement in the 3rd year for all 33 JJBs in rajasthan (recurring only) including this construction grant calculated as rs. 303.60 lakh.


162

sl no. Components Cost per month as

per govt.estimates

Budgetary requirement per JJB/ annum14

requirement for 33 JJB/annum in Bihar

non recurring (one time grant)

1 Furniture and equipments 50000 1650000

2 one Computer with Web Cam and ups (including cost of software license) and one printer cum scanner

45000 1485000

3 Creating and maintaining a child friendly environment including painting of rooms, indoor games 7500 247500

Total- non-recurring 102,500 3,382,500

Recurring

4 rent for hiring building for running Children’s home rs. 10,000 per month 120000 3960000

5 traveling/meeting allowance for 2 social workers (12 meetings per month)

rs.1000 per sitting per member 480000 15840000

6 salary of one Assistant cum data entry operator rs. 9000 per month 108000 3564000 7 Child related expenses including medicine,

transportation, food, etc. during the process of production of a child to the committee

rs. 6000 per month72000 2376000

8 Contingency (water, electricity, telephone, stationary, photocopy, postage, local travel, etc.) rs. 5000 per month 60000 1980000

ToTAl RECuRRIng EXP- JJB 840000 27720000

Budget requirement for one JJB (recurring + non recurring) (rs. in lakh) 9.42

A total Fund requirement towards maintenance of 33 JJBs in rajasthan per annum (rs. in lakh) 311.03

B Actual fund allocation towards maintenance of 33 JJBs in rajasthan, Fy 2013-14 (rs. in lakh) 116.82

C gap between fund requirement and actual allocation for JJBs in rajasthan (C=A-B), Fy 2013-14 (rs. in lakh)

194.21

Table 3.17: Maintenance grant For An Existing JJB – Rajasthan



4. uNIT COST ANAlySIS OF SElECTEd COmPONENT (ChIld FrIENdly ENvIrONmENT) uNdEr ICPS dErIvEd FrOm ExPErIENTIAl FIEld STudy

sl no. itam Quantity unit price total Cost per annum

1 Children Bed 2 3500 7000

2 mattress 2 4000 8000

3 Bed Kit (2 Bed sheets + 1 pillow + cover + 1 Blanket) 4 1200 4800

4 seating Bench - 4 sitter 2 4500 9000

5 Children Chair (30 cm height) 2 400 800

6 toy shelf 1 4100 4100

7 soft toys - 1 set of 6 toys 2 2000 4000

8 Children toys and puzzles - 1 set of 5 toys 9 soft Board - 5 ft X 4 ft 1 3000 3000

10 palna (Cradle) 2 4500 9000

11 Book shelf 1 3700 3700

12 Children Books 30 100 3000

13 Children table - round / rectangular 2 5700 11400

Total 67800

Table 4.1: Creating and Maintaining a Child Friendly Environment

1. depicted in table 4.1, the total fund requirement for Creating and maintaining a Child Friendly environment including painting of rooms, indoor games in CWC and JJB, derived from our field study stands at Rs. 67,800 per annum. however, actual grant sanctioned by the government for this component, as per the revised norms of iCps is only rs. 7500 per annum, which is far below than the actual requirement.

a. in Bihar, fund requirement for Creating and Maintaining a Child Friendly Environment

at the rate of rs. 67800 per CWC/JJB for 38 CWC and 38 JJBs is calculated as rs. 25.76 lakh against which actual grant sanction has been rs. 2.85 lakh, leaving a huge gap of rs. 22.91 lakh.

b. in rajasthan, fund requirement for Creating and Maintaining a Child Friendly Environment at the rate of rs. 67800 per CWC/JJB for 33 CWC and 33 JJBs is calculated as rs. 22.37 lakh against which actual grant sanction has been rs.2.48 lakh, leaving a gap of rs. 19.89 lakh.


164

5. ExTENT ANd quAlITy OF FuNdINg FOr INTEgrATEd ChIld PrOTECTION SChEmE (ICPS)

Figure 5.1: Fund Allocation in ICPS, All India (in lakh)

5.1 Funding for ICPS in All India15

Allocation in india for iCps (Be) is depicted in the figure is taken from the Expenditure

Budget Volume ii, ministry of Women and Child Development. Expenditure figures for ICPS given in the same document revealed that 27 per cent and 28 per cent of allocated fund (Be) for Fy 2011-12 and Fy 2012-13 remained unspent in india.

24300

17730

36040

25846 27030

00

40000

0

5000

10000

15000

20000

25000

30000

35000

40000

2014-15 BE2013-14 BE2012-13 BE2011-12 BE



5.2 Funding for ICPS in bihar16

5.2.1 overall allocation on iCps in Bihar

As mentioned in the detailed demand for grants under the major head of account - 2235, department of social Welfare, allocation for iCps in Bihar is depicted in Figure 5.2.

5.2.2 outlays across service structure/components of iCps in Bihar17

Component wise central grant towards the different structure of iCps for planning, monitoring and implementation of the scheme is mentioned in the ministry of Women and Child Welfare. the supportive grant sanctions under the administrative structure at various levels of operation in Bihar are given in table 5.1 below. the table shows the total grant comprising of Central share and states share or ngo shares for different components, wherever applicable.

Figure 5.2: Fund Allocation in ICPS, Bihar ( in lakh)

0

1000

2000

3000

4000

5000

2014-15 BE2013-14 BE2012-13 BE2011-12 BE

939.57

4450 44004050


166

Table 5.1: Budget Allotted for ICPS (Central & State Share) in Bihar (Rs. In lakh)

sl no. ComponentsAllocation (grant in aid)

2011-12 2012-13 2013-141 (A) Service Delivery Structure

i) spsu (100% by goi) 2.9 8.61 35.93

ii) dCps in 38 districts (goi:state-75:25) 98.04 177.76 458.87

iii) sCps (goi:state-75:25) 6.89 32.75 37.04

iv) sArA (goi:state-75:25) 1.53 5.17 17.5

Total (A) 109.36 224.29 549.34

2 (B)Care, Support & Rehabilitation Services:0 50.94 72.22

9 open shelters in urban and semi-urban Areas (Centre : ngo - 90 : 10)

Total (B) 0 50.94 72.22

3 (C) Family based non-Institutional Care

i) sponsorship & Foster care fund 0 0 0

ii) After care fund 0 0 0

iii) Adoption Coordinating Agencies (ACAs) 0 0 0

iv)existing government run sAA (goi:state-75:25) 0 0 0

v) new government run sAAs (goi:state-75:25) 15.1 14.7 0

vi)ngo run sAAs (goi : ngo - 90:10) 0 0 42.66#

Total (C) 15.1 14.7 42.66

4 (D) Institutional Services-

i) maintenance of 35 govt. run homes (goi:state-75:25) 362.67 100 936.61

ii) maintenance of 28 govt. run homes (goi:state-75:25) 332.26 215 874.57

iii)Construction of 20 govt. run homes (goi:state-75:25) 0 314.82 250.82

Total (D) 694.93 629.82 20625 (E) Statutory Support Services (goi:state-35:65)

i) maintenance of 21 existing CWCs and 17 new CWCs (excluding Construction Cost) 112.14 118.97 165.63

ii) JJB in 38 districts excluding Construction Cost 134.52 89.96 113.87

Total (E) 246.66 208.93 279.56 (F) other Activities**

i) training, capacity building 0 0 0

ii) Advocacy, public education and education 0 0 0iii) situation Analysis and mapping of district, preparation of Annual district Plans, Resource mapping, Preparation of Resource director, Child trafficking etc 0 0 0

grand Total (A+B+C+D+E+F) 552.18 712.55 1324.41

source: grant in aid from the ministry of Women and Child developmentnote: Fund sharing pattern of Central, state and ngos are given in bracket (Centre: state : ngo). # 2 existing and 8 additional ngo run sAAs*grants towards maintenance of 14 existing and 14 additional govt run homes ** Fund sharing pattern for training and Capacity Building at the spsu is 100% of goi funding whereas that of sCps and dCps is goi:state-75:25; Fund sharing for Awareness building and advocacy is goi:state:75:25



5.2.3 requirement vs. Allocation in iCps in Bihar

1. Allocations on iCps in the state of Bihar has been far below the actual fund requirement in the Fy 2013-14, as per our unit cost analysis on present physical requirements. taking into account different structures and support services under iCps, total fund requirement calculated as rs. 5309.43 lakh every year in Bihar. Actual allocation in Fy 2013-14 on overall iCps has been far below at rs. 1324.41 lakh. Therefore, there is a shortfall of Rs. 3985.02 lakh in Fy 2013-14 on ICPS.

2. An analysis of fund requirement as well as actual allocations for different structure and support services under iCps in Bihar shows that the actual allocation on each component has been far below the requirement, going by the government’s revised norms of iCps which is applicable from April 2014.

a. requirement for state Child protection society as per the revised unit cost is calculated as rs. 226.78 lakh in Bihar against which actual allocation of rs. 37.04 lakh has been made in Fy 2013-14, leaving a gap of rs. 189.74 lakh.

b. requirement for state Child protection unit (sCpu) in Bihar stands at rs. 448 lakh against which an actual allocation of rs. 35.93 lakh has been made in Fy 2013-14, leaving a shortfall of rs. 412.07 lakh.

c. state Adoption resource Agency (sArA) requires an amount of rs. 22.05 lakh as per the government’s revised unit cost, against which an

amount of rs. 17.5 lakh has been provided in Fy 2013-14, leaving a gap of rs. 4.55 lakh.

d. there are 38 district Child protection unit (dCpu)in Bihar requiring a total amount of rs. 2172.46 lakh against which an amount of rs. 458.87 lakh has been allocated in Fy 2013-14, leaving a gap of rs. 1713.59 lakh.

e. total fund requirement for 9 open shelters running in Bihar is calculated as rs. 225.38 lakh against which an actual allocation of rs. 72.22 lakh has been made in Fy 2013-14, leaving a gap of rs. 153.16 lakh.

f. there are 10 state Adoption Agencies (sAAs) in Bihar requiring an amount of rs. 178.50 lakh against which rs. 42.66 lakh has been provided in Fy 2013-14, leaving a gap of rs. 135.84 lakh.

g. Fund requirement towards maintenance of 28 existing government run institutions and 6 ngo run institutions in Bihar is calculated as rs. 1228.76 lakh against which rs. 380.69 lakh has been allocated in Fy 2013-14 leaving a shortfall of rs. 848.07 lakh.

h. Fund requirement towards maintenance grants for 38 existing CWCs in Bihar is calculated as rs. 449.35 lakh against which an actual allocation of rs. 165.63 lakh has been made in Fy 2013-14, leaving a gap of rs. 283.72 lakh.

i. Fund requirement towards maintenance grants for 38 existing JJBs in Bihar is calculated as rs. 358.15 lakh against which an amount of rs. 113.87 lakh has been allocated in Fy 2013-14, leaving a gap of rs. 244.28 lakh.


168

5.2.4 Allocation vs. spending in iCps in Bihar

As described in section 3.1 and 3.2, there has been a gap between the fund requirement on overall iCps in Bihar as well as on Administrative and support structures of iCps and the actual allocations in Fy 2013-14. in the present section, one can see that the spending has been much lower than allocation. point to be noted that website of Women and Child department, government of india shows only the different administrative and support structure wise sanctions under iCds in various years to different states and therefore structure and service wise expenditure data are not available.

however, in the absence of component wise expenditure data, we have taken revised estimates and Actual expenditure

looking at the spending pattern in the same document, it is seen that in Fy 2011-12, total amount of fund allocated for iCps in Bihar has been spent whereas the Fy 2012-13 experienced huge under utilization of available fund. in Fy 2012-13 rs. 8.82 crore out of total allocation rs. 45.65 crore has been utilized, thereby keeping about 81 percent of the allocated funds unspent data from detailed demand for grants, department of social security and welfare, government of Bihar.

year Budget Estimates Expenditure (AE) Amount unspent

2011-12 939.57 939.57 0 (nA)

2012-13 4565.22 872.67 3692.55 (80.90%)

Figure 5.3: Requirement Vs. Allocation for ICPS in Bihar, Fy 2013-14

5309.43

1324.41

0

1000

2000

3000

4000

5000

6000

Actual allocationFund requirement

Table 5.2



Figure 5.4: Fund Allocation in ICPS, Rajasthan (in lakh)

5.3 Funding for ICPS in rajasthan

5.3.1 overall allocation on iCps in rajasthan

Fund allocation in rajasthan for the Fy 2011-12 to Fy 2014-15 is taken from the detailed demand for grants, social security and Welfare department, government of rajasthan.

5.3.2 spending across the support structure/components of iCps in rajasthan18

the supportive grant sanctions, in rajasthan both central and state’s share under the administrative structure at various levels of operation and different components are

depicted in table 5.3, which has been taken from the ministry of Women and Child development, Government of India. The grant figures are at variance those provided under the department of social security and Welfare in the demand for grants under the major head of 2235, government of rajasthan.

there is no sanction towards communication, transportation or stationeries for the special Juvenile police unit (sJpu)19 at the police station which is the first line of intervention to handle cases of both juveniles in conflict with law and children in need of care of protection. sJpus play a very important role in rehabilitating children to home, escorting and producing CnCp and JCl before the CWC or JJB, however, functioning of sJpus have been poor in both the states owing to no separate allocation.

0

500

1000

1500

2000

2500

3000

3500

4000

2014-15BE

2013-14BE

2012-13BE

2011-12BE

521.64

2165.43

3805.23 3714.16


170

Table 5.3: Budget Allotted for ICPS (Central & State’s Share) in RAJASThAn (Rs. In lakh)

sl no. Components

Allocation (grant in aid)

2011-12 2012-13 2013-14

1 (A) Service Delivery Structure

i) spsu (100% by goi) 0 0 0

ii) dCps in 33 districts (goi:state-75:25) 215.05 0 881.1

iii) sCps (goi:state-75:25) 15.49 0 71.26

iv) sArA (goi:state-75:25) 3.8 0 7.7

Total (A) 234.34 0 960.06

2 (B) Care, Support & Rehabilitation Services:29.86

40.94 186.51

2 existing open shelters in urban and semi-urban Areas (Center : ngo - 90:10)

Total (B) 29.86 40.94 186.513 (C) Family based non-Institutional Care

i) sponsorship & Foster care fund 0 0 0

ii) After care fund 0 0 0

iii) Adoption Coordinating Agencies (ACAs) 0 0 0

iv)existing sAA (goi:state-75:25) 9.63 36.75 235.62

v) new sAAs (goi:state-75:25) 15.71 11.03 20.43

Total (C) 25.34 47.78 256.054 (D) Institutional Services-

i) maintenance of 35 govt. run homes (goi:state-75:25) 362.67 100 936.61

ii) maintenance of 28 govt. run homes (goi:state-75:25) 332.26 215 874.57

iii)Construction of 20 govt. run homes (goi:state-75:25) 0 314.82 250.82

Total (D) 694.93 629.82 2062

5 (E) Statutory Support Services (goI:State-35:65) i) maintenance of 24 existing CWCs and 9 new CWCs (excluding Construction Cost) 99.18 75.35 156.42

ii) maintenance of 23 JJBs and 10 new JJBs excluding Construction Cost 69.62 55.64 116.82

Total (E) 168.8 130.99 273.24

6 (F) other Activities**

i) training, capacity building 0 0 0ii) Advocacy, public education and education 0 0 0iii) situation Analysis and mapping of district, preparation of Annual district plans, resource mapping, preparation of resource director, Child trafficking etc

0 0 0

grand Total (A+B+C+D+E+F) 1153.27 849.53 3737.86

source: grant in aid from the ministry of Women and Child developmentnote: Fund sharing pattern of Central, state and ngos are given in bracket (Center:state:ngo). ** Fund sharing pattern for training and Capacity Building at the spsu is 100% of goi funding whereas that of sCps and dCps is goi:state-75:25; Fund sharing for Awareness building and advocacy is goi:state:75:25



5.3.3 requirement vs. Allocation in iCps in rajasthan

1. taking all the administrative and service structures under iCps, total fund requirement based on the government’s revised financial norms is calculated as rs. 9912.66 lakh per annum in rajasthan. Actual allocation on overall iCps comprising all administrative and support structures is far below the requirement at rs. 3737.86 lakh in Fy 2013-14. therefore, there is a shortfall of rs. 6174.80 lakh under iCps in rajasthan. in other words, to bridge the gap, allocation has to be increased by more than 62 per cent (rs. 6174.80 lakh).

2. An analysis of fund requirement as well as actual allocations for different structure and support services under iCps in rajasthan shows that the actual allocation on each component has been far below the requirement, even going by the government’s revised norms of iCps which is applicable from April 2014.

a. requirement for state Child protection society as per the revised unit cost is calculated as rs. 226.78 lakh in rajasthan against which an actual allocation of rs. 71.26 lakh has been made in Fy 2013-14, leaving a gap of rs. 155.52 lakh.

b. requirement for state Child protection unit (sCpu) stands at rs. 448 lakh whereas there was no allocation in Fy 2013-14 in rajasthan.

c. state Adoption resource Agency (sArA) requires an amount of rs. 22.05 lakh as per the government’s revised unit cost, against which an amount of rs. 7.7 lakh has been provided in Fy 2013-14 in rajasthan, leaving a gap of rs. 14.35 lakh.

d. Fund requirement for 33 district Child protection unit (dCpu) in rajasthan as per the revised unit cost is calculated as rs. 1886.61 lakh

against which an amount of rs. 881.1 lakh has been allocated in Fy 2013-14, leaving a shortfall of rs. 1005.51 lakh.

e. Fund requirement for 20 open shelters in rajasthan is calculated as rs. 430.14 lakh against which an amount of rs. 186.51 lakh has been allocated in Fy 2013-14, leaving a gap of rs. 243.63 lakh.

f. there are 33 state Adoption Agency (sAA) in rajasthan requiring an amount of rs. 539.70 per annum against which an amount of rs. 256.05 lakh has been allocated in Fy 2013-14, leaving a gap of rs. 283.65 lakh.

g. there are a total of 89 children/observation/special homes in rajasthan requiring fund allocation of rs. 3032.32 lakh towards maintenance of homes, against which an amount rs. 1811.18 lakh has been allocated in Fy 2013-14, leaving a gap of rs. 1221.14 lakh.

h. Fund requirement towards construction and maintenance of 20 institutions/homes approved by pAB in rajasthan calculated as per the revised unit cost stands at rs. 2625.80 lakh, against which an amount of rs. 250.82 lakh has been allocated in rajasthan in Fy 2013-14, leaving gap of rs. 2374.98 lakh.

i. maintenance grants for existing 33 CWCs in rajasthan requires fund of rs. 390.23 lakh, against which an amount of rs. 156.42 lakh has been actually allocated in Fy 2013-14, leaving a gap of rs. 233.81 lakh.

j. maintenance grants for existing 33 JJBs in rajasthan requires fund of rs. 311.03 lakh, against which an amount of rs. 116.82 lakh has been actually allocated in Fy 2013-14 towards maintenance grant of CWCs, leaving a gap of rs. 194.21 lakh.


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5.3.4 Allocation vs. spending in iCps in rajasthan

it has been analytically described in the sections 3.1 and 3.3 that fund allocation for iCps as a whole as well as for each administrative and support structure under iCps has been much lower than the fund requirements based on the government’s revised financial norms. Besides the fact that allocation was hugely insufficient it can be that whatever allocated has not been

Figure 5.5: Requirement Vs. Allocation for ICPS in Rajasthan, Fy 2013-14

9912.66

3737.86

0

2000

4000

6000

8000

10000

Actual allocationFund requirement

year Budget Estimates Expenditure (AE) Amount unspent

2011-12 1075.87 731.42 344.45 (32%)

2012-13 2402.59 1681.07 721.52 (30%)

Table 5.4: under utilisation of Allocated Fund in Rajasthan (Rs. In lakh)

spent. however, given the fact that administrative and support structure wise expenditure data are not available in WCd website, we had to rely on the allocation and expenditure on overall iCps in rajasthan, mentioned in the demand for grants, social security and Welfare department, government of rajasthan. As can be seen from table 5.3.3, 32 per cent and 30 per cent of allocated resources in Fy 2011-12 and Fy 2012-13 respectively remained unutilised.



ENdNOTES1Official website of Ministry of Women and Child Welfare Department; Web: http://wcd.nic.in/icpsmon/st_hlist1.aspx

2http://wcd.nic.in/icpsmon/pdf/icps/final_icps.pdf

3Official website for Ministry of Women and Child Development – Integrated Child Protection scheme; Web: http://wcd.nic.in/icpsmon/st_icpssanc13-14.aspx

4ibid

5 ibid

6ibid

7ibid

8ibid

9ibid

10ibid

11ibid

12ibid

13ibid

14ibid

15expenditure volume ii, ministry of Women and Child department, government of india

16plan expenditure details for 2012-13 to 2014-15, social security and Welfare dept, government of Bihar

17Official website for Ministry of Women and Child Development – Integrated Child Protection scheme; Web: http://wcd.nic.in/icpsmon/st_icpssanc13-14.aspx

18ibid

19the special Juvenile police unit shall ensure the registering; linking and monitoring of information regarding missing children received at the police station, and shall investigate immediately. sJpus need to establish & maintain contacts with experts from various fields for their assistance in child related matters.


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