Union of India and the States of Bihar and Rajasthan ( to )

Transcription

1 Costing and Budget Analysis National Flagship Programmes for Children Union of India and the States of Bihar and Rajasthan ( to )

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3 Costing and Budget Analysis National Flagship Programmes for Children

4 Save the Children works in 120 countries globally and across 15 states in India for children s rights To inspire breakthroughs in the way the world treats children, and to achieve immediate and lasting change in their lives. It is determined to build a world in which every child attains the right to survival, protection, development and participation. We deliver immediate and lasting improvements to children s lives worldwide. Save the Children works for: A world which respects and values each child. A world which listens to children and learns. A world where all children have hope and opportunity. Save the Children, India 3 rd Floor, Vardhaman Trade Centre, 9-11 Nehru Place, New Delhi Phone: , Fax: Website: Facebook: Twitter: 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 ( to ) 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. 2 Costing And Budget analysis

5 PREFACE Children 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

6 Foreword 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, crore per annum against which only Rs. 5, crore has been allocated in financial year (FY) leaving a gap of Rs. 15, crore. In Rajasthan, the requirement of funds under SSA is calculated as Rs.7, crore against which the actual allocation has been Rs. 3, crore in FY leaving a deficit of Rs 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 is calculated to be Rs. 4, crore against which Rs. 2, crore has been actually allocated, leaving a gap of Rs. 1, crore. In Rajasthan, for FY , the requirement for ICDS was Rs. 2, crore against which only Rs. 1, crore is allocated, leaving a deficit of Rs 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 lakh whereas the actual allocation was only Rs lakh in FY thereby leaving a deficit of Rs lakh. Similarly, fund required for all the components under ICPS in Rajasthan, as per the revised unit cost of GoI, is Rs lakh whereas the actual allocation was Rs lakh in FY thereby leaving a shortfall of Rs 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 4 Costing And Budget analysis

7 Acknowledgements This 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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9 CONTENTS Book I Introduction, Methodology and Key Findings Book II Sarva Shiksha Abhiyan (SSA) in alignment with the RTE Act, Book III Integrated Child Development Services (icds) Scheme Book IV Integrated Child Protection Scheme (icps)

10 Acronyms ACA: ACDPO: AE: ANMs: AWC: AWH: AWP&B: AWW: BE: BRC: BRGF: CAB: CAL: CDPO: CIF: CNCP: CRC: CWC: CWSN: DAB: DCPU: DDO: DPO: DTO: ECCE: FY: GDP: HB District: ICDS: ICPS: IEC: IMR: JCL: JJB: Adoption Coordinating Agency Additional Child Development Project Officer Actual Expenditure Auxiliary Nurse Midwives Anganwadi Centre Anganwadi Helper Annual Work Plan & Budget Anganwadi Worker Budget Estimates Block Resource Centre Backward Regions Grant Fund City Level Advisory Board Computer Aided Learning Child Development Project Officer Childline India Foundation Children in Need of Care and Protection Cluster Resource Centre Child Welfare Committee Children with Special Needs District Level Advisory Board District Child Protection Unit Drawing & Disbursing Officer district Project Officer District Treasury Officer Early Childhood Care and Education Financial Year Gross Domestic Product High Burdened Districts Integrated Child Development Scheme Integrated Child Protection Scheme Information Education & Communication Infant mortality rate Juvenile in conflict with law Juvenile Justice Board 8 Costing And Budget analysis

11 MDG: MDM: MGNREGA: MHRD: MIS: MMR: MoUs: MSDP: NA: NE: NFHS: NGO: NUEPA: OOSC: P&L mother: PAB: PS: PSE: RE: REMS: RSCPC: RTE Act: SAA: SARA: SCPS: SCs, STs, BPL: SJPU: SNP: SPSU: SRS: SSA: TLE: TLM: UPS: WCD: Millennium Development Goal Mid Day Meal Mahatama Gandhi National Rural Employment Guarantee Act Ministry of Human Resource Development Management Information System Maternal Mortality Rate Memorandum of Understanding Not Available North Eastern National Family Health Survey Non-government Organization National University of Educational Planning and Administration Out of School Children Pregnant & Lactating mother Project Approval Board Primary School Pre-School Education Revised Estimates Research, evaluation, monitoring and supervision Rajasthan State Children Protection Society Right of children to Free and Compulsory Education Act State Adoption Agency State Adoption Resource Agency State Child Protection Society Schedule Caste, Schedule Tribe, Below Poverty Line Special Juvenile Police Unit Supplementary Nutrition Programme State Project Support Unit Sample Registration System Sarva Siksha Abhiyan Teaching Learning Equipment Teaching Learning Material Upper-primary school Women and Child Development

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13 Introduction, Methodology and Key Findings Book 1 Introduction, Methodology and Key Findings Union of India and the States of Bihar and Rajasthan ( to ) Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 11

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15 CONTENTS 1. Introduction Need for the Study Methodology: Ascertaining the Financial Requirement Data Source Challenges and Limitations Key Findings Sarva Shiksha Abhiyan (SSA) Physical Status and Planning SSA Gap between Fund Requirement and Actual Allocations for SSA Unit cost analysis of selected units under SSA Field study report Under Expenditure in Sarva Shiksha Abhiyan (SSA) Integrated Child Development Services (ICDS) Scheme Physical Status and Planning Gap between Fund Requirement and Actual Allocations for ICDS Unit cost analysis of selected units under ICDS Field study report a.Supplementary Nutrition Programme b.Pre-School Education Under Expenditure ICDS Integrated Child Protection Scheme (ICPS) Physical Status and Planning ICPS Gap between Fund Requirement and Actual Allocations for ICPS Unit cost analysis of selected units under ICPS Field study report Under Expenditure - ICPS...39

16 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 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, Figure 3.2: Percentage Unspent in SSA in Rajasthan, 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 Figure 3.8: Fund requirement vs. allocation for ICPS in Rajasthan, FY 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

17 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 onefifth 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 Introduction, Methodology and Key Findings 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, numbercrunching 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. Childrelated expense heads were then segregated from the demands for grants submitted by the all departments. All the data (Budget Estimate, Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 15

18 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. 16 Costing And Budget analysis

19 Introduction, Methodology and Key Findings 2. Methodology: Ascertaining the Financial Requirement In 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 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. Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 17

20 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 , AWCs in Bihar should have covered lakh children below 6 years including severely malnourished children, which is lakh, based on the calculation that per cent of total lakh children of 6-72 months are severely malnourished in Bihar. Therefore, child beneficiaries in Bihar should have been lakh under 6 years and lakh severely malnourished under 6 years. Similarly AWCs in Bihar should have covered lakh P&L mothers in Calculation for fund requirement in for these three beneficiaries of SNP has been done as under: a) Fund to provide SNP to Children in 6-72 months in Bihar = lakh x Rs x 300 feeding days = Rs lakh b) Fund to provide SNP to severely underweight Children in 6-72 months in Bihar = lakh x Rs x 300 feeding days = Rs lakh c) Fund to provide SNP to Pregnant and Lactating women in Bihar = lakh x Rs x 300 feeding days = Rs lakh Total fund required for SNP in Bihar therefore amounts to Rs 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 per cent school in Bihar running with common toilet leaving a gap of percent school that lacks toilet facility. According to government of Bihar s own statistics, there are primary and upper primary schools in Bihar. Therefore, as per our calculation there are schools running without toilet (72876 schoolsx28.49%) in Bihar. Going by the revised norm of SSA to provide Rs towards construction of a toilet, the total fund requirement for construction of all toilets, amounts to Rs 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 lakh whereas the recurring cost for running a Children Home estimated as Rs lakh, thus a total amount (recurring and nonrecurring) of Rs 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 lakh and non-recurring grants for 6 NGO run Homes amounts to Rs lakh, thus the total amount stands at Rs 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 Costing And Budget analysis

21 Introduction, Methodology and Key Findings 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 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. Table 2.1: Data Collection and Field Work Level State District Block Implementation PROGRAMME SSA ICDS ICPS Bihar Rajasthan Bihar Rajasthan Bihar Rajasthan Bihar Education Project Directorate, Patna DPO, Khagaria Block Education Officer, Khagaria and Mansi Blocks 5 School each in Khagaria and Mansi Blocks Sarva Shiksha Abhiyan Directorate, Jaipur DPO, Alwar Block Education Officer, Umren and Thanagaji Blocks 5 Schools each in Umren and Thanagaji Blocks Social Welfare Directorate, Patna CDPO, Khagaria and Mansi Lady Supervisors Khagaria and Mansi 5 Anganwadi Centres each in Khagaria and Mansi ICDS Directorate, Jaipur CDPO, Tonk Urban and Umren Lady Supervisors Tonk Urban and Umren 5 Anganwadi Centres in Tonk Urban and Umren Social Welfare Directorate, Patna Assistant Director's Office, Khagaria NA CWC - Patna and Khagaria, JJB - Patna and Khagaria, Children Homes - Apna Ghar, Nishant Home Patna, Observation Home Begusarai, Child Line - Patna Child Rights Directorate, Jaipur Assistant Director's Office, Tonk NA CWC - Jaipur and Tonk, JJB - Jaipur and Tonk, Children Homes - Jaipur and Tonk, Observation Home Jaipur, Child Line Jaipur and Tonk Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 19

22 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) 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 Table 2.2: Sources of Data Department Demand No. Major Head No. Department of School Education, Government of Bihar Department of School Education, Government of Rajasthan 24,30, Department of School Education and literacy, Government of India Department of Social Welfare, Government of Bihar 35, , 2236 Department of Social Welfare, Government of Rajasthan , 2236 Ministry of Women and Child Development, Government of India Department of Health and Family Welfare, Government of Bihar Department of Health and Family Welfare, Government of Rajasthan Department of Health and Family Welfare, Government of India Costing And Budget analysis

23 Introduction, Methodology and Key Findings 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. Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 21

24 3. Key Findings 3.1 Sarva Shiksha Abhiyan (SSA) 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 , a. In Bihar, 1290 PS were upgraded to UPS, 868 new PS were constructed, and Libraries were constructed for 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 per cent of school (all types) lack common toilet; more than 33 per cent lack separate toilet for girls; government schools lack a playground; schools lack boundary wall; schools lack library and schools lack a kitchen shed to cook mid day meal. b. In Rajasthan, 22.4 per cent school lack common toilet; government schools lack a playground; schools lack boundary wall; schools lack a Library and 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 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 22 Costing And Budget analysis

25 Introduction, Methodology and Key Findings 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 and FY respectively. b. In Rajasthan, 72 per cent and 90 per cent of approved budget kept unspent in FY and FY 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 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 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 crore per annum in Bihar against which only Rs crore has been allocated in FY leaving a gap of Rs crore. Table 3.1: Fund requirement vs. Actual Allocation in Bihar & Rajasthan Rs. in Crore Interventions Fund requirement per annum Actual Allocation in FY Gaps Fund requirement per annum Actual Allocation in FY Gaps BIHAR RAJASTHAN Access Retention Enhancing quality Annual Grants Bridging gender & social gaps School Infrastructure Management TOTAL Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 23

26 b. In Rajasthan, requirement of fund under SSA calculated is as Rs crore against which the actual allocation has been Rs crore in FY leaving a shortfall of Rs 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 crore in Bihar against which actual allocation of only Rs crore in FY has been made leaving shortfall of Rs crore. b. Fund requirement for Access in Rajasthan has been calculated as Rs crore, against which a meagre allocation of Rs crore has been made in FY , leaving shortfall of Rs 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 crore against which Rs crore was allocated in FY leaving gap of Rs crore. b. Fund requirement for retention in Rajasthan is calculated as Rs crore against which actual allocation has been Rs crore in FY 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 crore in Bihar against which Rs crore was allocated in FY leaving gap of Rs crore. b. Fund requirement towards enhancing quality component calculated as Rs crore in Rajasthan, against which Rs crore was allocated in FY , leaving gap of Rs crore. 4. Annual Grants Annual grants includes School Grants, Maintenance Grants and REMS activities a. Annual Grants altogether require an amount of Rs crore in Bihar against which an actual allocation of Rs crore was made leaving a gap of Rs crore. b. Fund requirement towards Annual Grants was calculated as Rs crore in Rajasthan against which an actual allocation of Rs crore was made in FY , leaving a gap of Rs 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. 24 Costing And Budget analysis

27 Introduction, Methodology and Key Findings a. This component altogether requires a fund of Rs crore in Bihar against which Rs crore was allocated in FY leaving a gap of Rs crore. b. In Rajasthan, fund requirement for this component has been calculated as Rs crore against which only Rs was allocated in FY leaving a gap of Rs 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 crore in Bihar against which an actual allocation of Rs crore in FY was made leaving a gap of Rs crore. b. In Rajasthan, fund requirement is Rs crore against which an amount of only Rs crore was allocated in FY , thereby leaving a gap of Rs 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 crore in Bihar against which an actual allocation of Rs crore has been made in FY thereby leaving gap of Rs crore b. Fund requirement for Management in Rajasthan is Rs crore against which an actual allocation of Rs crore has been made leaving a gap of Rs crore 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 Headmastercum-Office room and 500 sq. ft. of verandah) calculated as Rs 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 headmastercum-office room) calculated as Rs per school per year. As per the unit cost derived from field study, a total amount of Rs 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 per school per year, the financial requirement is Rs crore for Bihar for PS & UPS and Rs. Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 25

28 crore for Rajasthan for PS & UPS. Against this requirement the actual allocation towards Maintenance and Repair of School Buildings stands at only Rs 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 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 In Rajasthan, 58 per cent of total fund towards Infrastructure was unspent in 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, Teacher's Salary Infratructure Out of school Children Distribution of Textbooks, Uniforms Training Figure 3.2: Percentage Unspent in SSA in Rajasthan, Community Training 30 Innovative Activity 35.9 Community Mobilisation Total Civil Works Inclusive Education 20 Special Training 52.2 Teacher's Training Costing And Budget analysis

29 Introduction, Methodology and Key Findings 3.2 Integrated Child Development Services (ICDS) Scheme 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 centers sanctioned in Bihar only 39,331 centres are imparting pre-school education to 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 lakh children were covered through 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 lakh children were covered through lakh AWCs providing PSE in India. 2. Infrastructure As per government s norm, there has to be one Anganwadi Centre (AWC) per 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 AWCs in Bihar, according to the population norm, only 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 in Bihar, as of December b. In Rajasthan, against required number of AWCs according to the population norm, only 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 in Rajasthan, as of December c. In India, to cover lakh population as per Census 2011, required number of AWCs was against which AWCs have been sanctioned leaving a gap of AWCs. Operational AWCs are much less at in India, as of December 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, 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 Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 27

30 c. In India, out of 9036 CDPO posts sanctioned, only 5985 are actually posted; posts of Supervisors, posts of AWW and posts of AWHs were lying vacant as of December 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 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 , FY , and FY calculated as Rs crore, Rs crore & Rs crore respectively in Bihar against which Rs crore, Rs crore and Rs crore have been actually allocated in these three years. Therefore, gap between requirement and allocatuons stand at Rs crore, Rs crore and Rs crore in FY , FY and FY respectively. Component wise allocations for ICDS in Bihar: a. Fund for SNP: Budgetary requirement to cover beneficiaries of Supplementary Nutrition Programmes, for the FY , FY and FY calculated as - Rs crore, Rs crore and Rs crore respectively, against which actual allocations (mentioned in Detailed Demand for Grants) stands at Rs crore, Rs crore and Rs crore. There is a shortfall of allocation by - Rs crore in FY , Rs crore in , and Rs crore in FY 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 crore, Rs crore and Rs crore in FY , FY and FY respectively, against which actual allocations in Bihar have been Rs crore, Rs crore and Rs crore respectively, leaving shortfall of Rs crore, Rs crore and Rs 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 AWCs stands at Rs crore in accordance with the norm for Construction of Rs per AWC building for all states other than NE region states. 28 Costing And Budget analysis

31 Introduction, Methodology and Key Findings Table 3.2: Fund Requirement vs. Actual Allocation in Bihar, Component-Wise (Rs. in Crore) Components SNP Requirement Allocation Gap ICDS General Requirement Allocation Gap Figure 3.3: Fund Requirement vs. Actual Allocation for ICDS in Bihar (Rs. in crore) FY FY FY Fund requirement Actual Allocation Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 29

32 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 , FY , FY calculated as Rs crore, Rs crore and crore respectively. Against these requirements, actual allocations are far below at Rs crore, Rs crore and Rs crore, leaving shortfalls of Rs crore (40% of required fund), Rs crore (33% of required fund) and Rs crore(25% of required fund) in FY , FY and FY respectively. Component wise allocations for ICDS in Rajasthan: a. Fund for SNP: Fund requirements to cover beneficiaries under SNP in Rajasthan calculated as Rs crore in FY and FY , Rs crore in FY Actual allocations on Supplementary Nutrition Programme as of FY (the latest available figures on different components wise allocations) stands at Rs crore in Rajasthan, leaving a gap of Rs crore. c. Construction cost of AWC: As per the Annual Progress Report (ICDS & WE) in Rajasthan, there are AWCs are running in rented building for which establishment cost of Rs has to be provided under universalization of ICDS. Fund requirement for construction of building for all AWCs calculated as Rs crore against which only Rs crore has been provided in , leaving a gap of Rs crore. d. Maintenance of Government Owned Buildings: Allocation required for AWCs running in Government owned buildings in Rajasthan calculated as Rs crore and against this requirement Rs.5 crore has been provided in FY leaving a gap of Rs.3.19 crore. e. Staff Salaries: Fund requirement towards honorarium of AWWs sanctioned in Rajasthan amounts to Rs crore whereas only a meagre amount of Rs crore had been allocated in FY 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 crore in FY , FY and FY , whereas a minuscule amount of RS crore has been provided in FY There was a shortfall of Rs crore in FY Costing And Budget analysis

33 Introduction, Methodology and Key Findings Table 3.3: Fund Requirement vs. Actual Allocation in Rajasthan, Component-Wise, FY (Rs. in Crore) Components Fund Requirement Actual Allocation Gap SNP Training for CDPOs/Supervisors/AWW Construction cost of AWC Maintenance of government owned buildings Staff salaries Figure 3.4: Fund Requirement vs. Actual Allocation for ICDS in Rajasthan (Rs. in Crore) FY FY FY Fund requirement Actual Allocation Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 31

34 Unit cost analysis of selected units under ICDS Field study report a Supplementary Nutrition Programme The unit cost for SNP beneficiaries per day as per our field study is calculated as, Rs per child (of 6-72 months) per day; Rs per severely malnourished child per day and Rs 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 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 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 crore for AWC in Bihar, and II. Rs crore for AWC in Rajasthan. I. SNP in Bihar: Fund requirement for lakh children in the age group of 6 to 72 months in per child per day for 300 feeding days is calculated as Rs crore; Fund for lakh severely underweight per child per day for 300 feeding days is calculated as Rs crore and fund for lakh Pregnant women and Lactating Rs per woman per day for 300 feeding days is calculated as Rs crore. Thus, total fund requirement for SNP stands at Rs crore. II. SNP in Rajasthan: Fund requirement for lakh children under 6 years of age in per child per day for 300 feeding days is calculated as Rs crore; Fund for severely malnourished per child per day for 300 feeding days is calculated as Rs crore and fund for 9.78 lakh Pregnant Women and Lactating per woman per day for 300 feeding days is calculated as Rs crore. Thus, total fund requirement for SNP stands at Rs crore. 32 Costing And Budget analysis

35 Introduction, Methodology and Key Findings 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 and Similarly, for Rajasthan, FY shows a huge under spending by Rs crore which is more than 45 per cent of available resources. a. In Bihar, out of total fund allocation for ICDS General, Rs crore and Rs crore were unspent in FY and FY respectively. Similarly, out of total fund allocation for SNP, Rs crore and Rs crore were unspent in FY and FY 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 and FY ; 48.3 percent and 63.4 percent of allocated fund for training peogramme kept unspent in FY and FY respectively; 14.7 percent of fund for Honorarium to AWH kept unspent in FY ; 26.7 percent and 43.8 percent of fund for ICDS general kept unspent in FY and FY respectively. 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 Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 33

36 3.3 Integrated Child Protection Scheme (ICPS) 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 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 , 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 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 lakh. Actual allocation for ICPS as a whole stands at Rs lakh in FY Therefore, there is a resource gap of Rs lakh in Bihar in the FY b. Total fund required for all the components under ICPS in Rajasthan as per the revised unit cost of GoI calculated as, Rs lakh in Rajasthan. An amount of Rs lakh was actually provided for ICPS as a whole in the FY Therefore, there is a shortfall of Rs lakh in the FY in Rajasthan. 2. State Child Protection Society (SCPS): Total fund allocation for a unit of SCPS as per the revised norms is Rs lakh in both Bihar and Rajasthan. a. An amount of Rs lakh has been provided in FY leaving a shortfall of Rs lakh in Bihar 34 Costing And Budget analysis

37 Introduction, Methodology and Key Findings b. Rs lakh has been provided in FY leaving a shortfall of Rs 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 lakh has been allocated in Bihar, leaving is a resource gap of Rs 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 lakh for 38 DCPUs, at the rate of Rs lakh per DCPU per annum in Bihar, an amount of Rs lakh has been allocated in FY leaving shortfall of Rs lakh for 38 DCPUs in Bihar. b. Against a fund requirement of Rs lakh for 33 DCPUs in Rajasthan, at the rate of Rs lakh per DCPU per annum, an amount of Rs lakh has been allocated. There is a shortfall of Rs lakh for 33 DCPUs in Rajasthan. 5. Open Shelter a. Against the fund requirement of Rs lakh for 9 Open Shelters in Bihar at the cost of Rs lakh per annum per shelter, Rs lakh was allocated in FY , leaving a Gap in of Rs lakh b. Against the fund requirement of Rs lakh for 20 Open Shelters in Rajasthan at the cost of Rs lakh per annum per shelter, Rs lakh was allocated in FY , leaving a shortfall of Rs lakh. 6. State Adoption Agency(SAA) a. Fund requirement at the cost of Rs lakh per annum per SAA, for 2 existing and 8 additional SAAs in Bihar calculated as Rs lakh against which an amount of Rs lakh has been allocated in FY leaving a shortfall of Rs lakh in Bihar b. Fund requirement at the rate of Rs lakh per annum per SAA, for 33 SAAs in Rajasthan is calculated as Rs lakh, against which an amount of Rs lakh has been allocated in FY , leaving a shoryfall of Rs 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 lakh per Home/annum towards maintenance of these Institutions/Homes, total fund requirement is calculated as Rs lakh in Bihar against which an actual allocation of Rs lakh in FY has been made leaving a shortfall of Rs lakh. b. At the rate of Rs lakh per Home/annum towards maintenance of 89 Institutions/Homes in Rajasthan, total fund requirement is calculated as Rs lakh against which an actual allocation of Rs lakh has been made in FY , leaving a shortfall of Rs lakh. There was a fund requirement of Rs lakh towards construction of 20 Institutions/Homes in Rajasthan at the cost of Rs lakh, against which an amount of Rs lakh allocated in FY leaving a gap of Rs lakh. 8. Child Welfare Committee (CWC) a. Fund requirement towards maintenance grants for 38 CWCs in Bihar is calculated as Rs lakh, against which Rs lakh has been allocated in FY , leaving a shortfall of Rs lakh. Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 35

38 b. Fund requirement towards maintenance grants for 33 CWCs in Rajasthan is calculated as Rs lakh, against which Rs lakh has been allocated in FY , leaving a shortfall of Rs lakh. 9. Juvenile Justice Board (JJB) a. Fund requirement towards maintenance grants for 38 JJBs in Bihar is calculated as Rs lakh against which Rs lakh has been allocated in FY thereby leaving a shortfall of Rs lakh. b. Fund requirement towards maintenance grants for 33 JJBs in Rajasthan is calculated as Rs lakh, against which Rs lakh has been allocated in FY , leaving a shortfall of Rs lakh Figure 3.7: Fund Requirement vs. Allocation for ICPS in Bihar, FY (Rs. in Crore) Requirement Allocation Gap Figure 3.8: Fund Requirement vs. Allocation for ICPS in Rajasthan, FY (Rs. in Crore) Requirement Allocation Gap 36 Costing And Budget analysis

39 Introduction, Methodology and Key Findings Table 3.4: Total Fund Requirements and Actual Allocation on different Components of ICPS, State Wise (Rs in Lakh) BIHAR RAJASTHAN Sl. Components No of Cost Budgetary Actual Resource No of Cost Budgetary Actual Resource Gap No unit per unit Requirement Allocation in Gap unit per Requirement Allocation per annum FY unit per annum in FY State Child Protection Society (SCPS) 2 State Child Protection Unit (SCPU) 3 District Child Protection Unit (DCPU) 4 State Adoption Resource Agency (SARA) 5 Open Shelters for a Unit of Children 6 State Adoption Agency (SAA) 2 existing for a Unit of 10 Children New 7 Maintenance of Institutions/ 28 Govt. run Homes with 50 children 6 NGO run 8 Construction and Maintenance of Institutions/Homes with 50 children 9 Maintenance grants for existing CWCs 10 Maintenance grants for existing JJBs GRAND TOTAL Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 37

40 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 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 per CWC/JJB for 38 CWC and 38 JJBs calculated as Rs lakh against which actual grant sanction has been Rs lakh, leaving a huge gap of Rs lakh. 3.In Rajasthan, fund requirement for Creating and Maintaining a Child Friendly Environment at the rate of Rs per CWC/JJB for 33 CWC and 33 JJBs calculated as Rs lakh against which actual grant sanction has been Rs lakh, leaving a gap of Rs lakh. 38 Costing And Budget analysis

41 Introduction, Methodology and Key Findings 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 , only Rs crore out of total allocated amount of Rs crore has been utilised, thereby leaving Rs crore (about 81 per cent of the allocated funds) unspent in Bihar. 3. In Rajasthan, Rs crore of allocated funds (32 per cent) in FY and Rs crore of allocated funds (30 percent) in FY was unspent for ICPS. 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 Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 39

42 40 Costing And Budget analysis

43 Introduction, Methodology and Key Findings Book ii Sarva Shiksha Abhiyan (SSA) in alignment with the RTE Act 2009 Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 41

44 Bihar & Rajasthan ( to ) 42 Costing And Budget analysis

45 CONTENTS 1. Introduction Sarva Shiksha Abhiyan and Elementary Education SSA - In Alignment with RTE Act, Physical status of SSA: Coverage and Gaps State s Scenario: Bihar and Rajasthan at a glance Positive Developments Gaps in the School Infrastructure and Amenities Component-wise Costing under SSA Fund Requirement Vs. Actual Allocation Component wise Fund Requirement vs. Actual Allocations for SSA in Bihar Component wise Fund Requirement vs. Actual Allocations in Rajasthan Unit Cost Analysis of selected Units under SSA Financing of SSA (RTE Act, 2009) Financial provisioning for SSA in All India Financial provisioning for SSA in Bihar Overall allocation for SSA in Bihar Fund distribution across components in Bihar Fund requirement vs. Actual Allocation in Bihar Actual Allocation vs. spending in Bihar Financial Provisioning under SSA in Rajasthan Overall allocation for SSA in Rajasthan Fund distribution across components in Rajasthan Fund requirement vs. Actual Allocation for SSA in Rajasthan Allocation vs. Actual Expenditure in Rajasthan...83 Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 43

46 Table Table 1.1: Elementary education as % of total State Budget...46 Table 1.2: Outlays and Expenditure on Elementary Education in the two States and All India...46 Table 1.3: Norms and Standards under RTE Act, Table 2.1: Norms and Standards under RTE Act Table 3.1: Component wise fund requirement as per financial norms Vs. Actual fund allocation under SSA BIHAR...55 Table 3.2: Component wise Fund Requirement as per Financial Norms Vs. Actual fund allocation under SSA RAJASTHAN...63 Table 4.1: Costing for school level component based on empirical field study...68 Table 5.1: Costs towards Implementation of RTE through SSA during to Table 5.2: Approved Allocation, Releases and Expenditure under SSA in India...70 Table 5.3: Approved allocation, Releases and Expenditure under SSA in Bihar...71 Table 5.4: Different Category wise percentage of actual outlays for SSA in Bihar...73 Table 5.5: Fund requirement vs. Actual Allocation for SSA in Bihar...75 Table 5.6: Component wise Allocation and Spending in Bihar...77 Table 5.7: Approved allocation, Releases and Expenditure under SSA in Rajasthan...78 Table: 5.8:Different Category wise percentage of actual outlays for SSA in Rajasthan...80 Table 5.9: Fund requirement vs. Actual Allocation in Rajasthan...82 Table 5.10: Allocation and Expenditure, Component wise in Rajasthan...84 Figure Figure 2.1: Pupil-Teacher Ratio at PS and UPS...49 Figure 2.2: Single Teacher and Single Classroom PS...49 Figure 2.3: Situation of availability of toilets and drinking in Bihar...50 Figure 2.4: Situation of availability of toilets and drinking in Rajasthan...50 Figure 2.5: Situation of availability of toilets and drinking in All India...51 Figure 5.1: Percentage distribution of Interventions in Bihar...72 Figure 5.2:Fund requirement vs. Actual Allocation in Bihar...75 Figure 5.3: Unspent in SSA in Bihar (In percentage) -Average of and Figure 5.4:Fund distribution across components in Rajasthan...78 Figure 5.5:Fund requirement vs. Actual Allocation for SSA in Rajasthan...82 Figure 5.6: Percentage under expenditure on major components, Rajasthan, Box Box 1.1: Revising SSA s Financial Norms in alignment to the RTE Act, Box 5.1: Financial estimations by NUEPA...70 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 AW P&B of the state? Costing And Budget analysis

47 1. Introduction Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 2009 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 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 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 percent over last 4 years whereas the share in Rajasthan shows a decline between and from 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 crore in to Rs crore in present FY State budget outlays for elementary education increased by Rs crore and Rs crore in Bihar and Rajasthan respectively between FY and FY A detailed look at the scheme wise 2 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 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 A detailed study of SSA in alignment with RTE Act 2009 for the sample states of Bihar and Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 45

48 Rajasthan is therefore justified as SSA is the biggest scheme under Elementary Education in India to provide universal access to school education that RTE also envisages providing free and compulsory education to all children in 6-14 years age group. Table 1.1: Elementary Education as Percentage of total State Budget1 Year Bihar Rajasthan Table 1.2: Outlays and Expenditure on Elementary Education in the two States and All India (Rs. in Crore) RE AE RE AE RE BE Bihar Rajasthan All India 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. 46 Costing And Budget analysis

49 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 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 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, 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. Table 1.3: Norms and Standards under RTE Act, 2009 Number of teachers Building Minimum number of working days in an academic year Minimum number of working hours per week for a teacher Teaching/learning equipment Library Play material, games, sports equipment Norms and standards as per RTE Act, :1 (for class I-V), 35:1 (for class VI-VIII) At least three subject teachers (for class VI-VIII) 1 classroom per teacher 1 office-cum-store for headmaster Separate toilets Drinking water Kitchen for mid-day meal preparation Playground Boundary wall 200 working days (for class I-V) 220 working days (for class VI-VIII) 45 teaching including preparation hours Provided to each class Provided to each school Provided to each class Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 47

50 2. Physical status of SSA: Coverage and Gaps SSA, 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 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 State s Scenario: Bihar and Rajasthan at a glance 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 in both the states mentioned as under : 5 In Bihar students of class I-VIII has been provided with textbooks in against target of 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 PS and 7668 UPS 311 PS and 86 upgraded UPS received TLM, building and toilet facilities constructed teachers received in-service training against target of teachers In Rajasthan 1,411 Primary Schools have been sanctioned for construction PS have been upgraded in UPS. Remaining sanction for PS = 289 and for UPS =462 will be sanctioned before 31 st March Costing And Budget analysis

51 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act ,000 vacancies are sanctioned to be filled up by PR dept. by teachers are working in upgraded secondary school Children were benefited by residential/ non- residential special training 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 pupilteacher ratio and classroom-teacher ratio 6 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 per cent of school (all types) lack common toilet whereas, more than 33 per cent lack separate toilet for Figure 2.1: Pupil Teacher Ratio at PS and UPS Primary level Upper Primary BIHAR RAJASTHAN INDIA Figure 2.2: Single Teacher and Single Classroom PS (Percentage Share) BIHAR Single teacher PS (%) RAJASTHAN Single classroom PS (%) INDIA Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 49

52 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, As detailed out by NUEPA 7, Government schools (67.1%) in Bihar and Government schools in Rajasthan (51.6%) are without playground Figure 2.3: Situation of Availability of Toilets and Drinking in Bihar Percent School in Bihar without Common Toilet Girls' Toilet Drinking Water Figure 2.4: Situation of Availability of Toilets and Drinking in Rajasthan Percent School in Rajasthan without Common Toilet Girls' Toilet Drinking water Costing And Budget analysis

53 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act schools in Bihar and schools in Rajasthan are without Boundary wall schools in Bihar (45.44%) and schools (57.1%) in Rajasthan do not have Library PS in Bihar (21%) and PS in Rajasthan(19.3%) did not received Teachinglearning materials schools in Bihar (48.6%) and 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? Figure 2.5: Situation of Availability of Toilets and Drinking in All India Percent School in All India without Common Toilet Girls' Toilet Drinking Water Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 51

54 3.Component Wise Costing under SSA - Fund Requirement Vs. Actual Allocation Fund 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 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 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 in Bihar has been derived as depicted in the Table Actual allocations in 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 crore in Bihar, against which only Rs crore has been allocated in FY There is a shortfall of Rs crore in FY 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 crore, against which actual allocation in FY stands at Rs crore, leaving a gap of Rs 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 crore against which an actual allocation of Rs crore in FY has been made. There is a shortfall of Rs crore. a. There was NO allocation on Teaching Learning Equipment (TLE) in FY 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 lakh children in PS and Rs. 750 per child for lakh children in UPS calculated as Rs crore. There was NO allocation for this component in FY 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 crore. Actual allocation towards enhancing quality altogether is Rs crore in FY , leaving a gap of Rs crore. a. Teacher Salaries: In FY , the total allocation towards teacher salaries was Rs in Bihar against the actual requirements 52 Costing And Budget analysis

55 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 2009 of Rs crore to cover all PS and UPS teachers and HMs in position. The shortfall in financing teacher s salary in Bihar in FY amounts to Rs 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 crore against which only Rs crore has been allocated. There is a gap of Rs crore in FY 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 crore for 537 blocks in Bihar against which only Rs crore has been allocated in FY , leaving a gap of Rs 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 crore against which Rs crore is allocated in FY , leaving a gap of Rs 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 crore against which an actual allocation of Rs crore has been made in FY There is a shortfall of Rs crore for this category altogether. a. Provision for disabled children: Requires a fund of Rs crore for CWSN identified in Bihar against which an amount of only Rs crore has been allocated leaving a shortfall of Rs crore. b.innovative activities: Fund requirement for innovative activities is calculated as Rs. 38 crore against fund requirement of Rs crore leaving a gap of Rs 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 crore whereas only Rs crore was allocated in FY There is a shortfall of Rs 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 b. Boundary wall, Library, Electrification, Kitchen shed are some of the sub components that do not get any allocation in FY despite huge physical requirement such as, schools without boundary wall, without a library and PS requiring electrification, as mentioned in Flash statistics c. Proposal for construction of Common toilet, girls toilet, hand pumps/drinking water units for the FY were 1008, 4847 and 692 respectively which are much lesser than actual requirements. As per the Flash Statistics , there were schools Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 53

56 without common toilet, 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 crore against which an actual allocation of Rs was made in FY , leaving a gap of Rs crore. 54 Costing And Budget analysis

57 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 2009 Table 3.1: Component Wise Fund Requirement as per Financial Norms Vs. Actual Fund Allocation under SSA - BIHAR Sl. no. Component Estimated Unit Cost as per financial memorandum Physical requirement as on March 2013 Required Budgetary Allocation (Rs. In lakh) Actual Fund allocation for (Rs. In lakh)* 1 ACCESS 1.1 Opening of New schools NA Residential School of specific category of children* NA Residential Hostel for special category children* NA Special Training for mainstreaming of Out-of-School Children### Residential training Rs 20,000 per child/ annum OOSC*** Non-residential training Rs 6,000 per child/annum Subtotal - Special Training for mainstreaming OOSC (1) Subtotal ACCESS RETENTION 2.1 Free Textbooks### Free textbooks to Girls/SC/ST in PS Upper ceiling of Rs. 150/- per child * Free textbooks to Girls/SC/ST in UPS Upper ceiling of Rs. 250/- per child * Braille Book in PS Upper ceiling of Rs. 150/- per child 2937* Braille Book in UPS Upper ceiling of Rs. 250/- per child 1284* Subtotal - Free Textbooks Uniform to All Girls, SCs/Sts, BPL ### Rs. 400/- per child * Teaching Learning Equipment (TLE) ### Rs.20,000 for new PS and Rs.50,000 per upgraded UPS 644 new to be opened and 342 UPS to be upgraded* 2.4 Furniture in existing government schools Furniture for Govt. PS students ## Rs.500 per child Furniture for Govt. UPS students ## Rs.750 per child Subtotal - Furniture in Existing schools *** (2) Subtotal- RETENTION ENHANCING QUALITY Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 55

58 Sl. no. Component Estimated Unit Cost as per financial memorandum 3.1 Teacher's salary * Primary Teachers (Regular) Rs.10000/month Subject specific Upper Primary Teachers (Regular) Physical requirement as on March 2013 Required Budgetary Allocation (Rs. In lakh) (a) Science and Mathematics Rs.12000/month (b) Social Studies Rs.12000/month Actual Fund allocation for (Rs. In lakh)* (c) Languages Rs.12000/month Additional Teachers against PTR: New Additional Teachers - Rs.10000/month PS (Regular) Subject specific New Additional Teachers-UPS (Regular) (a) Science and Mathematics Rs.12000/month (b) Social Studies Rs.12000/month (c) Languages Rs.12000/month Part Time Instructors (if the number of children exceeds 100 in a school) (a) Art Education Rs.6000/month (b) Health and Physical Education Rs.6000/month (c) Work Education Rs.6000/month Primary Teachers ( Regular)-Existing Rs.10000/month Additional Teachers - PS (Regular) Rs.10000/month UP Teachers (Regular)-Existing Rs.40000/month Head Teacher for Upper Primary (if the number of children Rs.45000/month exceeds 100) Subject specific Upper Primary Teachers (Regular) (a) Science and Mathematics Rs.12000/month (b) Social Studies Rs.12000/month (c) Languages Rs.12000/month Part Time Instructors (if the number of children exceeds 100) (a) Art Education Rs.6000/month (b) Health and Physical Education Rs.6000/month (c) Work Education Rs.6000/month Costing And Budget analysis

59 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 2009 Sl. no. Component Estimated Unit Cost as per financial memorandum Subtotal Teachers salary Teachers training ## Physical requirement as on March 2013 Required Budgetary Allocation (Rs. In lakh) Actual Fund allocation for (Rs. In lakh)* In service training for 10 days per year Rs.100 per teacher per day teachers Job training for untrained teachers Rs.100 per day for 60 days untrained teachers Induction training of newly recruited teachers for 30 days Rs.100 per teacher per day new recruits Subtotal - Teacher's Training Academic Support through BRC * Salary of 6 Resource Persons at BRC in position Rs /month 537x6= Salary 2 RPs for CWSN Rs /month 537x2= Salary of 1 MIS Coordinator Rs /month Salary of 1 Data Entry Operator Rs /month Salary of 1 Accountant-cum-support staff for every 50 schools Rs.15000/month BRC grant for Meeting, TA Contingency grant for BRC Furniture Grant Rs /year TLM Grant Rs.10000/year Maintenance Grant Rs.10000/year Subtotal -Academic Support through BRC Academic Support through CRC * Salary of Cluster Resource Persons Rs.12000/month CRC grant for Meeting, TA Rs.12000/year Contingency grant for CRC Rs.10000/year Furniture Grant Rs.10000/year TLM Grant Rs.3000/year Maintenance Grant Rs.2000/year Subtotal - Academic Support through CRC (3) Subtotal - ENHANCING QUALITY ANNUAL GRANTS### Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 57

60 Sl. no. Component Estimated Unit Cost as per financial memorandum 4.1 School grant (includes, minor repairing, whitewashing/ painting rooms, repairing/purchasing furniture, painting blackboards)## School Grant for PS Rs per year for a PS PS* School Grant for UPS Rs. 7,000/- per year for a UPS UPS* Subtotal - School Grant Maintenance and Repair of School Buildings(PS and UPS) Upto Rs per year PS and UPS* 4.3 Research, Evaluation, supervision and monitoring (include honorarium and travel grant for monitoring; generation of community based data; research study etc.) ### Upto Rs per school per year PS and UPS* (4) Subtotal - ANNUAL GRANTS BRIDGING GENDER AND SOCIAL GAPS### 5.1 Provision for disabled children Up to Rs. 3000/- per child CWSN identified ** 38 districts Innovative activities for girls incl. CAL, ECCE, girls education and innovation for SC/ST/Minority girls Up to Rs.1 crore per district per year 5.3 Training of community leaders Non-residential ## Rs. 100/- per day per person (5) Subtotal - BRIDGING GENDER AND SOCIAL GAPS SCHOOL INFRASTRUCTURE# 6.i Additional classroom Rs. 4 lakh ii Office-cum-store-cum-Head Teacher's room Rs. 4 lakh 5207* iii New PS (includes school building, toilets, hand pump, kitchen shed and boundary wall) 6.iv New UPS (includes school building, toilets, hand pump, kitchen shed and boundary wall) Physical requirement as on March 2013 Required Budgetary Allocation (Rs. In lakh) Rs. 10 lakh 3014 new PS building* Rs. 15 lakh 342* v Building less PS Rs. 10 lakh 8565 (20.06% of total PS)*** 6.vi Building less UPS Rs. 15 lakh 301*** vii Common Toilet common toilet*** Actual Fund allocation for (Rs. In lakh)* 58 Costing And Budget analysis

61 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 2009 Sl. no. Component Estimated Unit Cost as per financial memorandum Physical requirement as on March 2013 Required Budgetary Allocation (Rs. In lakh) 6.viii Girls Toilet girls toilet*** ix Disabled friendly toilet x Hand Pump/bore well Rs schools*** xi Boundary wall/separation wall Rs schools*** xii Ramp with railing Rs schools*** xiii Library Rs for composite school schools*** Actual Fund allocation for (Rs. In lakh)* 6.xiv Electrification in PS Rs schools*** xv Construction of Building of residential schools for specific NA NA category of children 6.xvi Child Friendly Elements 9 NA NA NA xvii Kitchen shed Rs per shed schools*** (6) Subtotal - SCHOOL INFRATRUCTURE MANAGEMENT* 7.1 Management & MIS District NA Learning Enhancement Programme NA Community Mobilization NA State components NA (7) Subtotal MANAGEMENT Total Fund requirement for SSA per annum in Bihar (Rs. in crore) Actual allocations for SSA in Bihar FY (Rs. in crore) Gap between fund requirement and actual allocation for SSA, FY (Rs. in crore) #Source: Working Group Report on Elementary Education and Literacy, 12 th Five Year Plan, , MHRD, Govt. of India, October 2011 ## Minutes of the 201 st PAB meeting held on 22nd April, 2013, for approval of the Annual Work Plan & Budget of Sarva Shiksha Abhiyan (SSA), Bihar for the year ### SSA Financial Memorandum * Annexure -V-VI-VII ** Annexure III ***Flash Statistics , by NUEPA Note: 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 is the most important. In Bihar, government approved Rs per school at district for REMS activities and Rs per school at state level REMS activities including Rs.50 per school. Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 59

62 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 in Rajasthan has been derived as depicted in the Table In case of Rajasthan, the total fund required to fill up the present physical gaps under different component/intervention in Rajasthan amounts to Rs crore against which Rs crore has been allocated in FY There is a shortfall in allocation by Rs crore in FY 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 crore against which an amount of only Rs crore is allocated in FY There was a shortfall of Rs crore for this category. a. There are OOSC identified in Rajasthan who had to be mainstreamed out of which only children has been covered under residential and non residential training with an amount of Rs crore in FY 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 crore. Actual fund allocation in FY for these components altogether was Rs crore leaving a huge gap of Rs. 833 crore. a. There are 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 crore, there has been NO allocation in FY 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 crore. However, there was NO allocation towards TLE in FY c. Fund requirement to provide furniture for lakh children in PS and lakh children in UPS at the cost of Rs. 500 per children in PS and Rs750 per child in UPS is calculated as Rs crore. However, there was NO allocation in FY 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 crore. An amount of Rs crore has been allocated in FY leaving a gap of Rs 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 existing teachers and head teachers in Rajasthan in FY , with a proposed allocation of Rs crore against which only an amount of Rs crore has been allocated actually leaving a gap of Rs crore. b. Teacher training: In Rajasthan, new recruits were to be provided the induction training, the non residential orientation at CRC level to teachers, in-service training to teachers and refresher residential training to Head Teachers for which a sum total of Rs crore was required against which only Rs.9.45 crore has been provided in FY Costing And Budget analysis

63 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 2009 There is a shortfall of Rs crore towards teachers training in Rajasthan in FY 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 crore for 256 BRCs in Rajasthan against which only Rs crore was allocated in FY leaving a shortfall of Rs 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 crore against actual allocation of only Rs crore was made for 3074 CRCs in FY Therefore, there is a shortfall of Rs crore in FY 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 crore against which an actual allocation of Rs crore has been made in FY a. There are CWSN identified in Rajasthan requiring fund allocation of Rs crore at the rate of Rs per child per year. Against this requirement, an amount of only Rs crore has been allocated leaving a gap of Rs crore in FY 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 crore between fund requirement and actual allocation in FY c SMC/PRI leaders were to be trained at Rs. 100 per day for 3 days requiring an amount of Rs crore whereas training programme arranged for only one day providing an amount of Rs crore in FY in Rajasthan, leaving a gap of Rs crore. 6. Maintenance grant: There are PS and UPS in Rajasthan for which fund requirement towards maintenance grant calculated as Rs crore at the rate of Rs.7500 per school per year. However, there was NO allocation towards providing maintenance grant in FY Research, evaluation, monitoring and supervision activities: PS and UPS require an amount of Rs crore towards REMS activities at the rate of up to Rs 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 crore in FY School Infrastructure: Against a total requirement of Rs crore to fill up gaps in infrastructure in schools, an amount of only Rs crore has been provided. The shortfall in allocation towards Civil Works in Rajasthan amounts to Rs crore in the FY a. Rajasthan experiences huge infrastructural gaps at the school level. Despite the fact that schools in Rajasthan lack common toilet, 5550 schools lack facilities of water/hand pumps, schools lacks boundary wall, PS lack electrification, schools lack provision of a library and schools lack a kitchen shed, there has been NO allocation for all these components in FY Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 61

64 b. PAB approved 3016 additional classrooms and 773 office-cum-store-cum head teachers room in FY posing a financial requirement of Rs crore and Rs crore respectively, against which there has been NO allocation for these two sub components in FY c. 462 new UPS has been sanctioned as per government s record in FY that includes school building, toilets, hand pump, kitchen shed and boundary wall requiring fund allocation Rs crore. However, nothing has been allocated for New UPS in FY Costing And Budget analysis

65 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 2009 Table 3.2: Component Wise Fund Requirement as per Financial Norms Vs. Actual Fund Allocation under SSA RAJASTHAN Sl no. Component Estimated cost as per financial memorandum 1 ACCESS Physical requirement as on March 2013 Required Budgetary Allocation (Rs. in lakh) 1.1 Opening of New schools NA Residential School of specific category of children* NA 7* Residential Hostel for special category children* NA 14* Transport/escort facility NA 87561* Special Training for mainstreaming of Out-of-School Children Residential training Rs. 20,000 per child/ * annum Non-residential training Rs. 6,000 per child/ annum Subtotal- Special Training for mainstreaming OOSC (1) Subtotal - ACCESS RETENTION 2.1 Free Textbooks### Free textbooks to girls/sc/st in UPS Rs. 250/- per child Braille Book in PS Rs. 150/- per child Large print books in PS Rs. 150/- per child Braille Book in UPS Rs. 250/- per child Large print books in PS Rs. 250/- per child Subtotal - Free Textbooks *** Uniform to All Girls, SCs/STs, BPL ### Rs. 400/- per child *** Teaching Learning Equipment (TLE) ### Rs.20,000 for new PS and Rs.50,000 per upgraded UPS 1411 new to be opened and 1402 UPS to be upgraded* 2.4 Furniture in existing government schools### Furniture for Government PS students Rs.500 per child Actual Fund allocation for (Rs. in lakh) Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 63

66 Sl no. Component Estimated cost as per financial memorandum Furniture for Government UPS students Rs.750 per child Subtotal - Furniture in Existing schools *** (2) Subtotal RETENTION ENHANCING QUALITY 3.1 Teacher's salary * New Primary Teachers (Regular) Rs.27,000/month New Subject specific Upper Primary Teachers (Regular) 0.00 (a) Science and Mathematics Rs.27,000/month (b) Social Studies Rs.27,000/month (c) Languages Rs.27,000/month Primary Teachers (Regular)-Existing Rs.3.48 lakh/year Primary Teachers (Para)-Existing Rs.2.88 lakh/year Primary Teachers Rs.1.08 lakh/year UP Teachers (Regular)-Existing Rs.3.48 lakh/year UP Teachers Rs.1.08 lakh/year Head Teacher for Upper Primary Rs.4.88 lakh/year UPS H.M. Teacher Rs.4.20 lakh/year UPS H.M. Teacher (Vacant) Rs.60,000/year Subtotal-Teacher's salary Teacher s training ## In-service course for existing teachers for 10 days per year Rs.100 per teacher per day Non residential meeting for all teachers at CRC level once in a year Rs.100 per teacher per day days Induction training of newly recruited teachers Rs.100 per teacher per day days Refresher residential in-service training for Head Teachers at BRC level Rs.100 per teacher per day Physical requirement as on March 2013 Required Budgetary Allocation (Rs. in lakh) teachers* teachers* new recruits* 46688* Subtotal Teachers Training Academic Support through BRC * Actual Fund allocation for (Rs. in lakh) 64 Costing And Budget analysis

67 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 2009 Sl no. Component Estimated cost as per financial memorandum Physical requirement as on March Salary of 6 Resource Persons at BRC in position Rs /month 256x6= Salary 2 RPs for CWSN Rs.15000/month /RP 256x2= Salary of 1 MIS Coordinator Rs.1.08 lakh/year Required Budgetary Allocation (Rs. in lakh) Actual Fund allocation for (Rs. in lakh) Salary of 1 Data Entry Operator Rs.84000/year Salary of 1 Accountant-cum-support staff for every 50 Rs.1.10 lakh/year schools BRC grant for Meeting, TA Rs.30000/year Contingency grant for BRC Rs.50000/year Furniture Grant Rs.50000/year TLM Grant Rs.10000/year Maintenance Grant Rs.10000/year Subtotal - Academic Support through BRC Academic Support through CRC * Salary of Cluster Resource Coordinator Rs.12000/month CRC grant for Meeting, TA Rs.12000/year Contingency grant for CRC Rs.10000/year Furniture Grant Rs.10000/year TLM Grant Rs.3000/year Maintenance Grant Rs.2000/year Subtotal - Academic Support through CRC (3) Subtotal - ENHANCING QUALITY ANNUAL GRANTS### 4.1 School grant (includes, minor repairing, whitewashing/ painting rooms, repairing/purchasing furniture, painting blackboards) School Grant for PS Rs per year for PS** a PS School Grant for UPS Rs. 7,000/- per year UPS for a UPS Subtotal - School Grant Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 65

68 Sl no. Component Estimated cost as per financial memorandum 4.2 Maintenance grant (PS and UPS) Up to Rs per year 4.3 Research, Evaluation, supervision and monitoring (include honorarium and travel grant for monitoring; generation of community based data; research study etc.) ### Up to Rs per school per year PS and UPS** PS and UPS** (4) Sub-Total- ANNUAL GRANTS BRIDGING GENDER AND SOCIAL GAPS### Provision for disabled children Up to Rs. 3000/- per child 5.2 Innovative activities for girls including CAL, ECCE, girls education and innovation for SC/ST/Minority girls Up to Rs.1 crore per district per year Physical requirement as on March CWSN identified** Required Budgetary Allocation (Rs. in lakh) 33 districts Actual Fund allocation for (Rs. in lakh) 5.3 Training of community leaders Non-residential * Rs. 100/- per day per person (5) Sub-Total- BRIDGING GENDER AND SOCIAL GAPS SCHOOL INFRASTRUCTURE# 6.i Additional classroom# Rs. 4 lakh ii Office-cum-store-cum-Head Teacher's room Rs. 4 lakh iii New PS (includes school building, toilets, hand pump, kitchen shed and boundary wall) 6.iv New UPS (includes school building, toilets, hand pump, kitchen shed and boundary wall) Rs. 10 lakh 289 new PS building Rs. 15 lakh v Building less PS Rs. 10 lakh 553 (75% of total PS) 6.vi Building less UPS Rs. 15 lakh vii Common Toilet Rs common toilet 6.viii Girls Toilet 3966 girls toilet ix Toilet repair Rs x Hand Pump/bore well Rs schools xi Drinking water facility repair Rs school Costing And Budget analysis

69 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 2009 Sl no. Component Estimated cost as per financial memorandum Physical requirement as on March 2013 Required Budgetary Allocation (Rs. in lakh) 6.xii Boundary wall/separation wall Rs schools Actual Fund allocation for (Rs. in lakh) 6.xiii Ramp with railing Rs schools xiv Library Rs for schools composite school 6.xv Electrification in PS Rs schools xvi Construction of Building of residential schools for specific NA NA category of children 6.xvii Child Friendly Elements Kitchen shed Rs per shed schools (6) Subtotal - SCHOOL INFRASTRUCTURE MANAGEMENT* 7.1 Management & MIS District NA NA Learning Enhancement Programme NA NA Community Mobilization NA State components NA NA (7) Subtotal MANAGEMENT GRAND TOTAL- SSA Fund requirement per annum for SSA in Rajasthan (Rs. in crore) Actual allocation for SSA in Rajasthan, FY (Rs. in crore) Gap between fund requirement and actual allocation, FY (Rs. in crore) # Source: Working Group Report on Elementary Education and Literacy, 12th Five Year Plan, , MHRD, Govt. of India, October 2011 ## Minutes of the 196st PAB meeting held on 18th March, 2013, for approval of the Annual Work Plan & Budget of Sarva Shiksha Abhiyan (SSA), Rajasthan for the year ### SSA Financial Memorandum * Rajasthan, Annexure -V-VI-VII ** Rajasthan, Annexure III ***Flash Statistics , by NUEPA Note: 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 is most important. In Rajasthan, 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. Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 67

70 4. Unit Cost Analysis of selected Units under SSA This 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 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. As per the unit cost derived from field study, depicted in the Table 4.1, a total amount of Rs 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 per school per year, the financial requirement is Rs crore for Bihar for PS & UPS and Rs crore for Rajasthan for PS & UPS. Against this requirement the actual allocation towards Maintenance and Repair of School Buildings stands at only Rs 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. 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 Polish of Blackboards (20 sq. ft. each) Minor repair of furniture and Minor Repair of Door and Windows - Wood and Glass Rs. 5 / sq. ft. for four walls and ceiling inside and outside Rs. 2 / sq. ft. Rs. 500 per class per annum 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) 9 (For 8 classrooms and 1 Headmaster cum Office room) 10 (8 Classrooms, 1 staff room, and 1 headmaster-cum-office room) Total Cost per school per annum Costing And Budget analysis

71 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 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, 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 to as per the break up given in the table 5.1 below 10 : 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 to Rs. in crore Sl. No. Item Last two years of 11 th Plan First three years of 12 th Plan Total 1 Child Entitlements Teacher related costs Infrastructure School related costs Research, Evaluation and Management TOTAL Source: Working Group Report on Elementary Education and Literacy, 12 th Five Year Plan, , MHRD, Govt. of India, October 2011 Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 69

72 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 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 crore in FY to Rs crore in FY Box 5.1: Financial estimations by NUEPA 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 to which worked out to 2.29 lakh crores covering four years of 11th Plan and three years of 12 th Plan NUEPA worked out financial estimates for the period, , 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 Table 5.2: Approved Allocation, Releases and Expenditure under SSA in India 11 (Rs. In lakh) Year Approved AWP&B Released Expenditure Percentage of Expenditure to Total Approved All India Percentage of Expenditure to Total Released Costing And Budget analysis

73 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 2009 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 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 and 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 to 37 percent in 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. Table 5.3: Approved Allocation, Releases and Expenditure under SSA in Bihar 12 (Rs. In Lakh) Year Approved AWP&B Released Expenditure Percentage of Expenditure to Total Approved Bihar Percentage of Expenditure to Total Released Source: Bihar Education Project Council, Patna (bepssa.in) Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 71

74 5.2.2 Fund distribution across components in Bihar State level expenditure in Bihar shows the imbalance in expenditure as of FY 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 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 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 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 crore out of total outlays of Rs crore has been allocated in FY , 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 lakh (0.1 per cent of total outlays) has been allocated in FY towards REMS activities that include only monitoring of programme. Figure 5.1: Percentage Distribution of Interventions in Bihar, FY Infratructure 32.5 Innovation for OSC 2.8 Distribution of Textbooks, uniforms 12.5 Administration 4.1 Training 1.6 Special programmes 0.7 Teacher s salary Costing And Budget analysis

75 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 2009 Table 5.4: Different Category Wise Percentage of Actual Outlays for SSA in Bihar (Rs. in Lakh) Category Components Actual outlays FY % to Total Outlay Access Opening of New schools Residential School of specific category of children Residential Hostel Transport/escort facility Special Training for mainstreaming of Out-of-School Children Sub Total: ACCESS Retention Free Text Book Provision of 2 sets of Uniform Teaching Learning Equipment (TLE) Sub Total: RETENTION Enhancing Quality Teacher's salary Teacher's training Academic Support through BRCs Academic Support through CRCs Innovation Library in school Sub Total: ENHANCING QUALITY Annual Grants School grants Maintenance Grant Research, Evaluation, Monitoring & Supervision (REMS) Sub Total: ANNUAL GRANTS Bridging Gender and Social gaps School Infrastructure Management CWSN Innovations for girls education Training of community leaders Sub Total: BRIDGING GENDER AND SOCIAL GAPS Civil works Sub Total: CIVIL WORKS Project management cost State components Sub Total: MANAGEMENT GRAND TOTAL SSA Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 73

76 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 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 in Bihar was Rs crore. There is a shortfall of Rs 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 , 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 crore against which an actual allocation of Rs crore has been made in FY There is a shortfall of Rs crore. b. Another category Retention in school shows a shortfall of resources by Rs 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 crore in these two components respectively. c. There is a shortfall of Rs 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 is calculated as Rs crore and Rs crore respectively. Shortfall in allocation towards support through BRCs and support through CRCs in Bihar calculated as Rs crore and Rs crore respectively, in the FY d. Based on the unit cost provided for each component under Civil Works, the total fund requirement for School Infrastructure is calculated as Rs crore whereas only Rs crore was allocated in , thereby leaving a shortfall of Rs crore in Bihar towards financing Infrastructure under SSA. e. Allocations for Bridging gender and social gaps shows shortfall of Rs crore in FY against the fund requirement. Only Rs crore has been provided towards provision for disabled children in Bihar against actual requirement of Rs crore if government s unit cost is adhered. Provision for disabled children in Bihar experiences shortfall of Rs in FY Innovations for girls, SCs/STs/Minority girls experiences shortfall of Rs crore in FY Costing And Budget analysis

77 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 2009 Table 5.5: Fund Requirement vs. Actual Allocation for SSA in Bihar Major Interventions Fund requirement* Actual Allocation in FY Access Retention Enhancing quality Annual Grants Bridging gender & social gaps School Infrastructure Management TOTAL Gaps (Rs. in crore) Figure 5.2: Requirement Vs. Allcation for SSA in Bihar (Rs. in Crore) Fund requirement Actual Allocation in FY Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 75

78 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 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 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 and FY (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 and Teacher's Salary Infratructure Out of School Children Distribution of Textbooks, Uniforms Training 76 Costing And Budget analysis

79 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 2009 Table 5.6: Component Wise Allocation and Spending in Bihar 13 Rs. In lakh Sl No. Components Allocation Expenditure Allocation Expenditure Allocation 1 Teacher's Salary Teacher's Grant BRCs CRCs Teacher's Training Out of School Children Special Training Free Textbooks set of Uniforms to children studying in Government schools Inclusive Education- Interventions for CWSN Total Civil Works Teaching Learning Equipment Maintenance Grant School Grant Research & Evaluation Project Management Cost & MIS SPO REMS State Community Mobilisation Learning Enhancement Programme Innovative Activity Community Training Management & MIS District Residential Schools/Hostels for specific category of children Library in school Total SSA Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 77

80 5.3 Financial Provisioning under SSA in Rajasthan Overall allocation for SSA in Rajasthan Approved allocations have been almost halved in both the years for which data was available in Rajasthan, depicted in Table 5.7. However, the amount released in 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 to 89.9 percent of approved allocation in being spent. Table 5.7: Approved allocation, Releases and Expenditure under SSA in Rajasthan (Rs. In lakh) Year Approved AWP&B Released Expenditure Percentage of Expenditure to Total Approved Percentage of Expenditure to Total Released Rajasthan NA Training 0.9 Figure 5.4: Fund distribution-component wise in Rajasthan, FY Administration 4.3 Infratructure 3.6 Distribution of textbooks 0.3 Special Programme 0.6 Teacher s Salary Costing And Budget analysis

81 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act Fund distribution across components in Rajasthan A detailed looks revealed that a significant amount of allocation towards civil works has been downsized from Rs crore in to Rs crore in 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 , 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 , with Rs crore out of total outlays of Rs 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 crore. Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 79

82 Table: 5.8: Different Category Wise Percentage of Actual Outlays for SSA in Rajasthan (Rs. in Lakh) Category Components Actual outlays FY % to Total Outlay Access Opening of New schools Residential School of specific category of children Residential Hostel Transport/escort facility Special Training for mainstreaming of Outof-School Children Sub Total: ACCESS Retention Free Text Book Provision of 2 sets of Uniform Teaching Learning Equipment (TLE) Sub Total: RETENTION Enhancing Quality Teacher's salary Teacher's training Academic Support through BRCs Academic Support through CRCs Innovation Library in school Sub Total: ENHANCING QUALITY Annual Grants School grants Maintenance Grant Research, Evaluation, Monitoring & Supervision Sub Total: ANNUAL GRANTS Bridging Gender and Social gaps School Infrastructure Management CWSN Innovations for girls education Training of community leaders Sub Total: BRIDGING GENDER AND SOCIAL GAPS Civil works Sub Total: CIVIL WORKS Project management cost State components Sub Total: MANAGEMENT GRAND TOTAL SSA Costing And Budget analysis

83 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 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 crore for FY , whereas, an amount of Rs crore has been allocated leaving a shortfall of Rs 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 , 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 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 crore between fund requirements and actual allocation in FY 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 towards Uniform, TLE and furniture for existing school against fund requirement of Rs crore, Rs crore and Rs 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 crore in all these four components altogether in FY 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 crore for 256 BRC in Rajasthan. Only Rs crore was allocated in FY for support to BRCs leaving a shortfall of Rs crore in FY Similarly, gap between fund requirements and actual allocation in FY 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 crore. There were new recruits to receive induction training, teachers to receive non-residential orientation, teachers to receive in-service training and Head Teacher to receive refreshing in-service training in Rajasthan. There was a shortfall of Rs crore towards teacher s training in Rajasthan in FY As per the government s sanction of fund to cover 7028 new teachers and existing regular/para teachers in Rajasthan, there was a need of Rs crore against which only Rs crore has been actually allocated in FY There is a shortfall of Rs crore in actual allocation towards Teacher s salary in FY 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 Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 81

84 for girls and Training of community leaders which altogether required fund of Rs crore in , against which a meagre amount of Rs crore was allocated in FY leaving a shortfall of Rs crore. e. Against a total requirement of Rs crore to fill up gaps in infrastructure in schools in Rajasthan, only an amount of Rs crore has been provided this year leaving a shortfall of Rs crore in the FY 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 amounts to Rs crore, Rs crore and Rs crore respectively, against which only Rs crore was allocated for all the three sub-components put together Figure 5.5: Requirement Vs. Allocation for SSA in Rajasthan (Rs. in Crore) Fund requirement Actual Allocation Interventions Table 5.9: Fund Requirement vs. Actual Allocation in Rajasthan Fund requirement per annum Actual Allocation in FY Rs. in crore Access Retention Enhancing quality Annual Grants Bridging gender & social gaps School Infrastructure Management TOTAL Gaps (Rs. in crore) 82 Costing And Budget analysis

85 Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act 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 , 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 and FY , the latest available years for expenditure data. Component/Intervention wise Allocation and expenditure for FY and Allocation for FY has been depicted in Table Data has been taken from the Minutes of the PAB meetings in and from official website of SSA, whereas the same data for FY was not found as the PAB document for this year in official website of SSA is nonfunctional. Component wise budget allocation figures available for and shows a decline from Rs crore to Rs between these years. Depicted in Figure 5.6, more than 50 per cent of total allocated fund remained unspent in FY 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 unutilized respectively in the FY Figure 5.6: Percentage under expenditure on major components, Rajasthan, Community Training 30 Innovative Activity 35.9 Community Mobilisation Total Civil Works Inclusive Education 20 Special Training Teacher's Training Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 83

86 Table 5.10: Allocation and Expenditure, Component wise in Rajasthan 14 Sl No. Components Allocation Expenditure Allocation 1 Teacher's Salary Teacher's Grant BRCs CRCs Teacher's Training Out of School Children 7 Special Training for mainstreaming OOSC Free Textbooks set of Uniforms to children studying in Govt schools Inclusive Education- Interventions for CWSN Total Civil Works Teaching Learning Equipment Maintenance Grant School Grant Research & Evaluation Management Cost & MIS SPO REMS State Community Mobilisation Learning Enhancement Programme Innovative Activity Community Training Management & MIS District Transport/Escort Facility Residential Schools for specific category of children Residential Hostel for specific category of children Library in school Total Outlay Approved (SSA)- RAJASTHAN Costing And Budget analysis

87 Endnotes Sarva Shiksha Abhiyan (SSA)in alignment with the RTE Act Demand for Grants, School Education and Literacy, Govt of Bihar and Govt of Rajsthan; Expenditure volume 2: Ministry of HRD, Govt of India 2 Major 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 3 web: 4 How has the dice rolled: Response to Union Budget , by CBGA 5 PAB minutes ; web: Annexure III, for Bihar and Rajasthan 6 Data 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 by NUEPA 7 Elementary Education in India- Progress towards UEE- Flash Statistics for the year by NUEPA 8 Annual State of Education Report (ASER) Child 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. 10 Working Group Report on Elementary Education and Literacy, 12th Five Year Plan, , MHRD, Govt. of India, October 2011 Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 85

88 11 SSA web portal: 12 Bihar Education Project Council, Patna (bepssa.in) Costing And Budget analysis

89 Integrated Child Development Services (icds) Scheme Book Iii Integrated child DEVELOPMENT Services (icds) scheme Bihar & Rajasthan ( to ) Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 87

90 88 Costing And Budget analysis

91 CONTENTS 1. Introduction Physical Status of ICDS: coverage and Gaps in the context of Bihar and Rajasthan and all India Supplementary Nutrition Programme Infrastructure Pre - School Education Human Resource Component Wise costing under ICDS- Fund Requirement Vs. Actual Allocation Fund Requirement vs. Actual Allocation for ICDS in Bihar Fund Requirement vs. Actual Allocation for ICDS in Rajasthan Unit Cost Analysis of selected Units under ICDS derived from Empirical Field Study: The case of Bihar & Rajasthan Pre- School Education (PSE) Supplementary Nutrition Programme Extent and quality of spending for ICDS Financing in India Financing ICDS in Bihar Overall allocation on ICDS in Bihar Fund Requirement vs. Actual Allocation in Bihar Actual Allocation vs. Spending in Bihar Financing ICDS in Rajasthan Overall allocation on ICDS in Rajastha Fund Requirement vs. Actual Allocation in Rajasthan Actual Allocation vs. Spending in Rajasthan Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 89

92 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 Table 2.2: Status of ICDS beneficiaries, as on March Table 3.1: Fund requirements vs. actual allocations under ICDS in Bihar Table 3.2: Fund requirement Vs Actual Allocation under ICDS in Rajasthan Table 4.1: Item wise cost analysis for Supplementary Nutrition Programme (SNP) Table 4.2: Item wise cost analysis for Pre-school Education (PSE) Table 5.1: Allocations and spending under ICDS in India Table 5.2.3: Under-utilisation/overutilization of allocated fund, Bihar Table 5.3.3: Underutilisation/overutilization of allocated fund in Rajasthan 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 Figure 5.2: Fund requirement vs. actual allocation in Bihar Figure 5.3: ICDS allocation over the year in Rajasthan Figure 5.4: Fund requirement vs. actual allocation in Rajasthan Figure 5.5: Fund allocation kept unspent, an average of & Box Box 1.1: Plan Targets set by the 12 th Five Year Plan Costing And Budget analysis

93 1. Introduction India is home to 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 lakh and 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 Integrated Child Development Services (icds) Scheme 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 preschool 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 Table 1.1: Basic health indicators in Bihar, Rajasthan and All India 2 Source Indicators Bihar Rajasthan India SRS 2011 Neo-Natal Death Rate SRS 2011 Infant Mortality Rate SRS 2011 Child Mortality (Under 5Yrs) NFHS-III Full Vaccination NFHS-III Under Nutrition (Under 5 Yrs) WCD (March 2011)* Severe Malnutrition (-3SD) NFHS-III Breast feeding within one hour of Birth NFHS-III Anemia among children (under the age of 5 years) Government of India Maternal Mortality Rate* Source: Data obtained from Annual Health Survey Fact Sheet by GoI *Data on malnourished children obtained from Performance Audit of ICDS Scheme, WCD, GoI, Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 91

94 Box 1.1: Plan Targets set by the 12 th Five Year Plan 4 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 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 These are Prevent and reduce young child undernutrition (% underweight children 0-3 years) by 10 percentage points. Enhance early development and learning outcomes in all children 0-6 years of age. 92 Costing And Budget analysis

95 Integrated Child Development Services (icds) Scheme 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 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 Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 93

96 2. Physical status of ICDS: Coverage and Gaps 5 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. Table 2.1: Number of ICDS Projects and AWCs as on March 2013 State No. of ICDS Projects No. of AWCs Sanctioned Operational Sanctioned Operational Reporting Bihar Rajasthan All India Source: Table 2.2: Status of ICDS Beneficiaries, as on March 2013 Beneficiaries of SNP (in lakh) Beneficiaries for pre-school education State 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 Rajasthan All India Source: 94 Costing And Budget analysis

97 Integrated Child Development Services (icds) Scheme 2.1. Supplementary Nutrition Programme 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 functional AWCs in Bihar, functional AWCs in Rajasthan and 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: In Bihar - Total child population (0-6 years): lakh - Total children covered under SNP: lakh - % children covered: 47.8% In Rajasthan - Total child population (0-6 years): lakh - Total children covered under SNP: lakh - % children covered: 60.1% In India - Total child population (0-6 years): lakh - Total children covered under SNP: lakh - % children covered: 72.3% In Bihar - Total no of P&L mothers: lakh - Total P&L mothers covered under SNP: 7.10 lakh - % P&L mothers covered: 48.4% In Rajasthan - Total no of P&L mothers: 9.78 lakh - Total P&L mothers covered under SNP: 9.24 lakh - % P&L mothers covered: 94.5% In India - Total child population (0-6 years): lakh - Total P&L mothers covered under SNP: lakh - % children covered: 85% Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 95

98 2.2. Infrastructure As per government s norm, there has to be one Anganwadi centre per 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 - No. of population (Census 2011): lakh - Required no. of AWC: Sanctioned AWC: (as of December 2013) - Functional AWC: (as of December 2013) - Gap between required & sanctioned: (29.1%) - Gap between required & functional: (29.3%) In Rajasthan - No. of population (Census 2011): lakh - Required no. of AWC: Sanctioned AWC: (as of December 2013) - Functional AWC: (as of December 2013) - Gap between required & sanctioned: (28.7%) - Gap between required & functional: (28.8%) In India - No. of population (Census 2011): lakh - Required no. of AWC: Sanctioned AWC: (as of December 2013) - Functional AWC: (as of December 2013) - Gap between required & sanctioned: (9.1%) - Gap between required & functional: (11.4%) 96 Costing And Budget analysis

99 Integrated Child Development Services (icds) Scheme 2.3 Pre-School Education Bihar is lagging far behind in providing preschool education (PSE) in AWCs. Out of 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. In Bihar - No. of Anganwadi Centers functioning: No. of AWC providing PSE: Total no. of beneficiaries for PSE (3-6 yrs): lakh In Rajasthan - No. of Anganwadi Centers functioning: No. of AWC providing PSE: Total no. of beneficiaries for PSE (3-6 yrs): Lakh In India - No. of Anganwadi Centers functioning: No. of AWC providing PSE: Total no. of beneficiaries for PSE (3-6 yrs): Lakh Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 97

100 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: No. of CDPO Sanctioned: No of CDPO Posted: Average AWC per CDPO posted: No. of supervisor sanctioned: No. of supervisor posted: Average AWC per Supervisor posted: 53 In Rajasthan - No. of Operational Anganwadi Centers: No. of CDPO Sanctioned: No of CDPO Posted: Average AWC per CDPO posted: No. of supervisor sanctioned: No. of supervisor posted: Average AWC per Supervisor posted: Costing And Budget analysis

101 Integrated Child Development Services (icds) Scheme In India, the overall situation is poor as well posts of CDPOs and 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. In India - No. of Operational Anganwadi Centers: No. of CDPO Sanctioned: No of CDPO Posted: Average AWC per CDPO posted: No. of supervisor sanctioned: No. of supervisor posted: Average AWC per Supervisor posted: 39 Figure 2.1: Vacancy of Lady Supervisors All India Rajasthan Bihar Percent vacancy in post of Supervisor as of March 2013 Percent vacancy in post of Supervisor as of March 2012 Figure 2.2: Vacancy of Anganwadi Workers All India Rajsasthan Bihar Percent vacancy in post of AWW as of March 2013 Percent vacancy in post of AWW as of March 2012 Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 99

102 3.Component Wise Costing under ICDS - Fund Requirement Vs. Actual Allocation Performance 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 12 th 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 ( ); (b) In additional 200 districts in second year ( ) (i.e. w.e.f ) including districts from special category States and NER. (c) In remaining districts in third year ( ) (i.e. w.e.f ) The revised norms for SNP will follow the phasing of the programme mentioned above. The revised norms for other components for which 100 Costing And Budget analysis

103 Integrated Child Development Services (icds) Scheme 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 Thus from Financial Year 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 Bihar 1. According to the figures from Demand for Grants, allocations for ICDS as a whole (Budget Estimates) in Bihar for the FY , FY and FY amounts to Rs crore, Rs crore and Rs 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 crore, an amount of Rs crore has been provided for ICDS as a whole (budget estimates) in FY leaving a gap of Rs crore (47%). b. Against fund requirement of Rs crore, an amount of Rs crore has been provided for ICDS as a whole (budget estimates) in FY leaving a gap of Rs crore (48%). c. Fund requirement under ICDS as a whole for FY stands at Rs crore, whereas, only an amount of Rs crore has been provided for ICDS as a whole in the present FY , in Bihar leaving a gap of Rs 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 lakh children in and lakh children every year in the age group of 6-72 months for next two years, i.e and (based on the calculation that one AWCs serves maximum 80 children and there were AWC in and AWCs in and in Bihar); b lakh severely malnourished children in the age group of 6-72 months in and lakh children every year in next two years, i.e and (based on calculation that 25.94% of lakh children in and 25.94% of lakh children in and ); and c lakh Pregnant women & Lactating mothers in and lakh every year in and (based on the calculation that one AWCs serves maximum of 16 women and there were AWC in and AWCs in and in Bihar). Total budgetary requirement to cover these beneficiaries for the FY , FY and FY is calculated as: Rs crore, Rs crore and Rs 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 has been in accordance with the new norms Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 101

104 that are applicable for all 38 districts in Bihar from the FY Construction of new AWCs: Out of AWCs in Bihar, only are functioning in government s own building leaving the remaining 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 AWCs stands at Rs 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. 102 Costing And Budget analysis

105 Integrated Child Development Services (icds) Scheme Table 3.1: Fund requirements vs. actual allocations under ICDS in Bihar Sl no Component Target Revised Norms in 2012 (per beneficiary per day) 1 Supplementary Nutrition Programme 2 Pre-School Education Children (6-72 months) Rs. 6.00/child/day for 19 HB dist; Rs. 4.00/child/day for 19 remaining dist Severely underweight children (6-72 months) Pregnant women & Lactating mothers Rs. 9.00/child/day for 19 HB dist; Rs. 6.00/child/day for 19 remaining dist Rs. 7.00/woman/day for 19 HB dist; Rs. 5.00/woman/day for 19 remaining dist No. of 3-6 yrs children Rs per kit per AWC per year Physical requirement Required budgetary allocation in FY Bihar lakh ( ); lakh ( )* lakh ( ); lakh ( )# lakh ( ); lakh ( )* AWC in : 82819; AWC in : Medicine kit AWC Rs per AWC per year AWC in : 82819; AWC in : Monitoring Evaluation (printing of various record, registers, monthly mobile recharge for AWW) Rs per operational AWC/mini AWC; Rs.50 per AWW for ICT AWC and AWW in : 82819; AWC and AWW in :91677 Required budgetary allocation in FY (Rs. In lakh) Required budgetary allocation in FY Training Component Job training of CDPO/ACDPO Rs. 500/day/trainee; 32 days No of CDPO: Induction training of CDPO/ Rs. 500/day/trainee; 7 days ACDPO refresher training of CDPO/ Rs. 300/day/trainee; 7 days ACDPO Job training of Supervisors Rs. 250/day/trainee; 32 days No of supervisors Refresher training of Rs. 250/day/trainee; 7 days posted: Supervisors Induction training of Supervisors Rs. 250/day/trainee; 7 days Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 103

106 Sl no Component Target Revised Norms in 2012 (per beneficiary per day) 6 Contingency/admin expenses Job training of AWW Rs. 150/day/trainee; 32 days AWW in :82819; Induction training of AWW Rs. 150/day/trainee; 8 days AWW in : Refresher training of AWW Rs. 150/day/trainee; 7 days Job training of AWH Rs. 150/day/trainee; 8 days AWH in : 82819; Refresher training of AWH Rs. 150/day/trainee; 5 days AWH in : State cell Rs per annum District Rs per annum No of dist: Project Rs per project per ICDS project: annum AWC Rs per AWC per annum AWC in : 82819; AWC in : IEC Project Rs per project per ICDS project: annum AWC Rs per AWC per annum AWC in : 82819; AWC in : Rent Project office Rs pr project per month ICDS project: Furniture/ Equipment (once in 5 year) (Furniture includes chair/ table, computer, printer, fax machine) AWC Rural: Rs. 750 per AWC per month Physical requirement Required budgetary allocation in FY No of AWC in rented building: Urban: Rs per AWC per NA month State cell Rs per state 5 ### District cell Rs per dist cell No of dist: ### Project Rs per project ICDS project: ### Bihar Required budgetary allocation in FY (Rs. In lakh) Required budgetary allocation in FY Costing And Budget analysis

107 Integrated Child Development Services (icds) Scheme Sl no Component Target Revised Norms in 2012 (per beneficiary per day) 10 Equipment (once in 5 year) AWC (gas burner, connection, utensils, mat carpet and others) 11 Uniform AWW, AWH, AWW cum nutritional counselor (2 saree set each per annum) 12 Badge AWW, AWH, AWW cum nutritional counselor (1 badge each) 13 Flexi fund (sudden requirement like referral arrangement, meeting, shortage of medicine, utensil) (Rs. In lakh) Bihar Rs per AWC No of AWC: ### Rs. 300 per saree AWW & AWH in ; AWW & AWH in Children (3-6 years) Rs. 250 per child per annum No of children 3-6 years: lakh Rs. 25 per badge AWW & AWH in ; AWW & AWH in AWC Rs per AWC per annum AWC in : 82819; AWC in : Weighing scale AWC Rs per AWC per annum for replacement 15 ECCE (parents meet, artisans involvement for making toys etc.) 16 Construction of AWC 16 Maintenance of govt owned ICDS building Physical requirement Required budgetary allocation in FY AWC in : 82819; AWC in : AWC Rs per AWC per annum AWC in : 82819; AWC in : AWC Rs per AWC building No of AWC running in rented building and need to be constructed: 60273## AWC Rs per AWC per annum No of AWC in Govt owned building: Required budgetary allocation in FY ### Required budgetary allocation in FY Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 105

108 Sl no Component Target Revised Norms in 2012 (per beneficiary per day) 17 Up gradation of AWC building (incl additional room for AWC) 18 Management Information System (State specific of Bihar) 19 Sneha Shivir (nutrition cost, medical facility and misc camp requirement for 200 HB dist AWC Rs per AWC building No of AWC in Govt owned building: ### State NA NA AWC Rs per camp over a cluster of 4 AWC (3 camps per annum) 20 AWC cum crèche Cost of cradles, additional and all establishment cost(once in 5 year) Honorarium to additional crèche worker Care items, soft toys, cleaning materials, snacks for children in AWC cum Creche No of AWC in 19 HB dist: 43274*** Rs per AWC No of AWC: 4584** ### Rs per worker per month Additional Creche worker in :4141; Additional creche worker in : 4584 Rs per AWC per annum AWC with creche in : 4141; AWC with creche in : Salary/ Honorarium 21.1 AWW AWC Rs per worker per month AWW in : 82819; AWW in : Additional AWW cum nutritional counselor in HB district Physical requirement Required budgetary allocation in FY Bihar AWC Rs per worker per month No of AWC in 19 HB dist: 43274**** Required budgetary allocation in FY (Rs. In lakh) Required budgetary allocation in FY Costing And Budget analysis

109 Integrated Child Development Services (icds) Scheme Sl no Component Target Revised Norms in 2012 (per beneficiary per day) 21.3 Anganwadi Helper (AWH) 21.4 Link worker (one worker over a cluster of 4 AWCs) AWC Rs per worker per month AWH in : 82819; AWH in : AWC Rs. 750 per worker per month No of AWC in 19 HB dist: 43274**** Salaries in ICDS State/District/AWC NA NA Salaries for CDPO and Supervisor posts vacant District Rs /month for CDPO; Rs. 25,000/month for Lady Supervisors Physical requirement Required budgetary allocation in FY No of CDPO Vacant: 8 ; No of Supervisors Vacant: Children with AWC Rs per children No of CWSN: 1.86 lakh***** special need Total Fund Requirement for ICDS in Bihar (Rs. in lakh) Actual Allocation for ICDS in Bihar (Rs. in lakh) Gap between fund requirement and actual allocations (Rs. in lakh) Note: Training component financial norm taken from the web: * The no. of children under 6 years calculated based on the assumption that one AWC serves a maximum of 80 children under 6 years, 16 pregnanct and lactating mothers. Therefore AWCs in Bihar should have lakh children under 6 years, but excluding severely malnourished children which is 25.94% of total children covered, number of children under 6 stands at lakh; The no of pregnant&lactating mothers as per this calculation is lakh in Bihar #25.94% of total lakh children of 6-72 months are severely malnourished in Bihar, therefore amounting to lakh; ** The AWC-cum-crèche model will be piloted in 5% AWCs on a 75:25 cost sharing basis with the States *** 19 districts of Bihar have been selected as the High Burden districts that have a total of AWCs. Sneha Shivir are arranged over a cluster of 4 AWCs and therefore in 43274/4=10818 AWCs ****One Link worker is appointed over a cluster of 4 AWCs in 19 HB districts and therefore one worker in 43274/4=10818 AWCs ***** Children with disability of all types in the age group 0-4 years taken from Census 2011; there is no other source to get this data as well as the Census 2011 does not mention the no of CWSN under 6 years of age ##Considering, that AWCs in Bihar are running in government owned building, the remaining =60273 AWCs are functioning in rented buildings ### All construction and establishment costs that are once for 5 years, assumed to be finished by and total fund requirement for ICDS calculated assuming one third of fund requirement for such components each year. Bihar Required budgetary allocation in FY (Rs. In lakh) Required budgetary allocation in FY Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 107

110 3.2 Fund Requirement vs. Actual Allocation for ICDS in Rajasthan 1. Due to absence of component wise data in Rajasthan for FY to FY , 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 , FY and FY are Rs crore, Rs crore and Rs crore respectively lakh children under 6 years of age (based on the calculation that one AWCs serves maximum 80 children and there are AWC in Rajasthan) 16,130 children who are severely malnourished (based on the calculation that 0.33% of total 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 AWC in Rajasthan). 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 , fund requirement for ICDS as a whole in Rajasthan stands at Rs crore whereas an amount of Rs crore (Budget Estimates) was allocated in FY leaving a gap of Rs crore (40%). Total budgetary requirement to cover these beneficiaries for the FY , FY and FY calculated as: Rs crore, Rs crore and Rs 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 has been in accordance with the new norms that are applicable for all 33 districts in Rajasthan from the FY Against fund requirement of Rs crore, an amount of Rs crore has been provided for ICDS as a whole (budget estimates) in FY leaving a gap of Rs crore (33%). In FY fund requirement under ICDS as a whole in Rajasthan stands at Rs crore, whereas, an amount of only Rs crore has been provided in the present FY , leaving a gap of Rs 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: 4. Construction of new AWCs: Out of total AWCs in Rajasthan, AWCs are running in rented building for which buildings need to be constructed. Govt of India has targeted construction of 2 lakh AWCs in 12 th 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, 13 th Finance Commission and other similar schemes. Based on our calculation, the total fund requirement in Rajasthan, irrespective of the source of fund, for the AWCs stands at : Rs crore in accordance with the norm for Construction of Rs per AWC building for all states other than NE region states. 108 Costing And Budget analysis

111 Integrated Child Development Services (icds) Scheme Table 3.2: Fund Requirement Vs. Actual Allocation under ICDS in Rajasthan Sl no Component Target Revised Norms in 2012 (per beneficiary per day) 1 Supplementary Nutrition Programme Children (6-72 months) Rs. 6.00/child/day for 19 HB dist; Rs. 4.00/child/day for 19 remaining dist Severely underweight children (6-72 months) Pregnant women & Lactating mothers Rs. 9.00/child/day for 19 HB dist; Rs. 6.00/child/day for 19 remaining dist Rs. 7.00/woman/day for 19 HB dist; Rs. 5.00/woman/day for 19 remaining dist Physical requirement Required budgetary allocation in FY Rajasthan lakh ( ); lakh ( )* lakh ( ); lakh ( )# lakh ( ); lakh ( )* Required budgetary allocation in FY (Rs. In lakh) Required budgetary allocation in FY Pre-School Education No. of 3-6 yrs children Rs per kit per AWC per No of AWC: year 3 Medicine kit AWC Rs per AWC per year No of AWC: Monitoring Evaluation (printing of various record, registers, monthly mobile recharge for AWW) 5 Training Component Job training of CDPO/ ACDPO Induction training of CDPO/ ACDPO refresher training of CDPO/ ACDPO Rs per operational AWC/mini AWC; Rs.50 per AWW for ICT No of AWC: 61100; No of AWW: Rs. 500/day/trainee; 32 days No of CDPO sanctioned: Rs. 500/day/trainee; 7 days Rs. 300/day/trainee; 7 days Job training of Supervisors Rs. 250/day/trainee; 32 days No of supervisors sanctioned: Refresher training of Supervisors Rs. 250/day/trainee; 7 days Induction training of Supervisors Rs. 250/day/trainee; 7 days Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 109

112 Sl no Component Target Revised Norms in 2012 (per beneficiary per day) 6 Contingency/admin expenses Job training of AWW Rs. 150/day/trainee; 32 days No of AWW: Induction training of AWW Rs. 150/day/trainee; 8 days Refresher training of AWW Rs. 150/day/trainee; 7 days Job training of AWH Rs. 150/day/trainee; 8 days No of AWH: Refresher training of AWH Rs. 150/day/trainee; 5 days State cell Rs per annum District Rs per annum No of dist: Project Rs per project per ICDS project: annum AWC Rs.1000 per AWC per annum No of AWC: IEC Project Rs per project per ICDS project: annum AWC Rs per AWC per annum No of AWC: Rent Project office Rs per project per month ICDS project: Furniture/ Equipment (once in 5 year) (Furniture includes chair/ table, computer, printer, fax machine) 10 Equipment (once in 5 year) AWC Rural: Rs. 750 per AWC per month Urban: Rs.3000 per AWC per month No of rural AWC in rented building: 14421** No of urban AWC in rented building: 1967** State cell Rs per state 5 ## District cell Rs per dist cell No of dist: ## Project Rs per project ICDS project: ## AWC (gas burner, connection, utensils, mat carpet and others) Physical requirement Required budgetary allocation in FY Rajasthan Required budgetary allocation in FY (Rs. In lakh) Rs per AWC No of AWC: ## Required budgetary allocation in FY Costing And Budget analysis

113 Integrated Child Development Services (icds) Scheme Sl no Component Target Revised Norms in 2012 (per beneficiary per day) 11 Uniform AWW, AWH, AWW cum nutritional counselor (2 saree set each per annum) 12 Badge AWW, AWH, AWW cum nutritional counselor (1 badge each) 13 Flexi fund (sudden requirement like referral arrangement, meeting, shortage of medicine, utensil) Rs. 300 per saree No of AWW: 61100; No of AWH: Rs. 25 per badge No of AWW: 61100; No of AWH: AWC Rs per AWC per annum No of AWC: Weighing scale AWC Rs per AWC per annum No of AWC: for replacement 15 ECCE (parents AWC Rs per AWC per annum No of AWC: meet, artisans involvement for making toys etc.) 16 Construction of AWC 17 Maintenance of govt owned ICDS building 18 Up gradation of AWC building (incl additional room for AWC) Physical requirement Required budgetary allocation in FY Rajasthan Required budgetary allocation in FY (Rs. In lakh) Required budgetary allocation in FY AWC Rs per AWC building No of AWC running in ## rented building and need to be constructed: AWC Rs per AWC per annum No of AWC in Government owned building: 40934** AWC Rs per AWC building No of AWC: ## Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 111

114 Sl no Component Target Revised Norms in 2012 (per beneficiary per day) 20 Sneha Shivir (nutrition cost, medical facility and misc camp requirement for 200 HB dist 21 AWC cum crèche Cost of cradles, additional and all establishment cost (once in 5 year) Honorarium to additional crèche worker Care items, soft toys, cleaning materials, snacks for children in AWC cum Creche 22 Salary/ Honorarium AWC Rs per camp over a cluster of 4 AWC (3 camps per annum) No of AWC in 19 HB dist: Rs per AWC No of AWC: 3055*** ## Rs per worker per month No of additional crèche worker: 3055 Rs per AWC per annum No of AWC: AWW AWC Rs per worker per month No of AWW: Additional AWW cum nutritional counselor in HB district 21.3 Anganwadi Helper (AWH) 21.4 Link worker (one worker over a cluster of 4 AWCs) AWC Rs per worker per month No of AWW for 19 HB district: AWC Rs per worker per month No of AWH: AWC Rs. 750 per worker per month No of AWC in 19 HB dist: Salaries in ICDS State/District/AWC NA NA Salaries for CDPO and Supervisor posts vacant District Rs /month for CDPO; Rs. 25,000/month for Lady Supervisors Physical requirement Required budgetary allocation in FY Rajasthan No of CDPO Vacant: 225 ; No of Supervisors Vacant: 967 Required budgetary allocation in FY (Rs. In lakh) Required budgetary allocation in FY Costing And Budget analysis

115 Integrated Child Development Services (icds) Scheme Sl no Component Target Revised Norms in 2012 (per beneficiary per day) Physical requirement Required budgetary allocation in FY Rajasthan Required budgetary allocation in FY (Rs. In lakh) Required budgetary allocation in FY Children with AWC Rs per child No of CWSN: 55748**** special need Total Fund Requirement for ICDS in Bihar (Rs. in lakh) Actual Allocation for ICDS in Bihar (Rs. in lakh) Gap between fund requirement and actual allocations (Rs. in lakh) Note: Training component financial norm taken from the web: * The no. of children under 6 years calculated based on the assumption that one AWC serves a maximum of 80 children in the age group of 6 to 72 months and 16 pregnant and lactating mothers, therefore lakh children and 9.78 lakh women/mothers **Annual Progress Report (ICDS & WE) in Rajasthan; web: Note: Total no of AWC running in rented building as per the annual report is of which are rural and 1967 are urban (based on the fact that about 12 percent of AWC in Rajasthan are urban) *** The AWC-cum-crèche model will be piloted in 5% AWCs on a 75:25 cost sharing cost sharing basis with the States ****Children with disability of all types in the age group 0-4 years taken from Census 2011; there is no other source to get this data as well as the Census 2011 does not mention the no of CWSN under 6 years of age # In Rajasthan, 0.33% of total lakh children are severely underweight in Rajasthan that stands at: ## All construction and establishment costs that are once for 5 years, assumed to be finished by and total fund requirement for ICDS calculated assuming one third of fund requirement for such components each year. Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 113

116 4.Unit Cost Analysis of selected Units under ICDS derived from Experiential Field Study This 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 preschool 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 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 crore for AWC in Bihar, and b.rs crore for AWC in Rajasthan. Table 4.1: Item Wise Cost Analysis for Pre-School Education (PSE) COMPONENT Pre-School Education ITEM RATE (INR) REQUIREMENT COST PER ANNUM Pencil Rs. 4 2 pencils per child per month 3840 Eraser 5 1 eraser per child month 2400 Colour Crayon 10 1 pack per child per month 4800 (Pack of 12) Blocks (toys) Boxes for one year 1000 Subject wise Sharpener 4 5 sharpener for the whole Centre for One 240 month Slate Piece for one year 1600 Chalk (Pack) Packet per month per AWC 2400 Note Book Rs Note Book per child per month 7200 Poster Piece per AWC per year 500 TOTAL COST PER KIT PER ANNUM PER AWC Costing And Budget analysis

117 Integrated Child Development Services (icds) Scheme 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. days is calculated as Rs crore and fund for 9.78 lakh Pregnant Women and Lactating per woman per day for 300 feeding days is calculated as Rs crore. Thus, total fund requirement for SNP stands at Rs crore. Evident from table 4.2, unit cost for SNP beneficiaries per day as per our field study is calculated as, Rs per child (of 6-72 months) per day; Rs per severely malnourished child per day and Rs 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 lakh children in the age group of 6 to 72 months in per child per day for 300 feeding days is calculated as Rs crore; Fund for lakh severely underweight per child per day for 300 feeding days is calculated as Rs crore and fund for lakh Pregnant women and Lactating per woman per day for 300 feeding days is calculated as Rs crore. Thus, total fund requirement for SNP stands at Rs crore. b. SNP in Rajasthan: Fund requirement for lakh children under 6 years of age in per child per day for 300 feeding days is calculated as Rs crore; Fund for severely malnourished per child per day for 300 feeding Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 115

118 COMPONENT CATEGORY ITEM RATE REQUIREMENT COST Supplementary Nutrition Programme Table 4.2: Item Wise Cost Analysis for Supplementary Nutrition Programme (SNP) 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/month Vegetables 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/ month Common Salt 16/KG 5 Kg per month Rs.80 /month Edible Oil 90/KG 8 Litre per month Rs.720 /month Spices 200/kg Assortment - 5 KG per month Rs. 1000/ month Fuels 450/Quintal 2 Quintal Rs. 900/month Transportation NA 600 Per month Rs. 600/month for purchased food item 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* Total Cost - Per Child per Day (Severely Underweight Child)** Additional 200 ml milk per child per and additional egg or banana per child per Total Cost - Per Woman per Day (Pregnant Woman and Lactating Mother)*** Additional 200 ml milk per woman per 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%) * 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 and additional egg or 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 ***Cost per P&L woman per day calculated as an additional 200 ml milk per woman per and additional egg or banana per woman per 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 rs.1.80+rs.8+rs.4= Rs Costing And Budget analysis

119 Integrated Child Development Services (icds) Scheme 5. Extent and quality of spending for ICDS Budget 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 to FY ), the total union budget allocation for ICDS was Rs crore against the proposed outlays for 11th five year plan period of Rs 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 crore has been allocated in the first three years of the 12th Five Year Plan, i.e. FY , and Thus, according to the Government s own commitment another Rs crore has to be allocated in the remaining two Financial Years of the 12th Five year Plan, i.e. in FY and FY 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 crore to Rs crore between the FY and FY Table 5.1: Allocations and Spending under ICDS in India 6 (Rs. in Crore) Year BE RE AE NA NA NA Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 117

120 5.2 Financing ICDS in Bihar 7 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 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 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 crore, Rs crore and Rs crore for FY , FY and FY respectively. Actual allocations have been far below at Rs crore (47 per cent lower than requirement), Rs crore (48 per cent lower than requirement) and Rs crore (44 per cent lower than requirement) in FY , FY and FY 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) Costing And Budget analysis

121 Integrated Child Development Services (icds) Scheme 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 , FY and FY is calculated as Rs crore, Rs crore and Rs 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 has been in accordance with the new norms that are applicable for all 38 districts in Bihar from the FY 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 crore, Rs crore and Rs crore in FY , FY and FY respectively. There is a shortfall of allocation by Rs crore in FY , Rs crore in , and Rs crore in FY 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 crore, Rs crore and Rs crore in FY , FY and FY respectively, against which actual allocations in Bihar have been Rs crore, Rs crore and Rs crore respectively as is evident from the Detailed Demand for Grants, Social security and welfare Department, Government of Bihar. There are shortfalls of Rs crore, Rs crore and Rs crore in FY , FY and FY 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 crore, Rs crore and Rs crore in FY , FY and FY 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 /month for CDPO and Rs /month for Lay Supervisor. Total fund requirement towards salaries of these vacant posts is calculated as Rs crore. 7. Since FY , for construction and maintenance of AWCs there has been an allocation of only Rs crore in and thereafter in and there has been no allocation for construction and maintenance in Bihar. This is against the fund requirement of Rs 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 crore. Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 119

122 Figure 5.2: Fund Requirement vs. Actual Allocation in Bihar (Rs. in Crore) FY FY FY Fund requirement Actual Allocation 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 and The FY 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 crore and Rs crore remained unspent in FY and FY On the other hand, out of total fund allocation for SNP, Rs crore and Rs crore remained unspent in FY and FY respectively. 3. It is evident from detailed component wise data that the fund allocation for ICDS through NABARD of Rs lakh has not been utilised in FY and carried forward to the next year s budget (Budget Estimate FY ) which is showing Rs 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. Table 5.2 Under-Utilisation/Overutilization of Allocated Fund, Bihar 8 (Rs. in Crore) Year Allocation (RE) Expenditure (AE) Amount unspent (35.07%) (17.95%) 120 Costing And Budget analysis

123 Integrated Child Development Services (icds) Scheme 5.3 Financing ICDS in Rajasthan 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 and However, data from the Annual Progress Report (ICDS & WE) differs slightly from that calculated from demand for grants 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 FY , FY and FY , as calculated from the existing physical requirements based on the unit cost provided by Government stands at Rs crore, Rs crore and Rs crore respectively in Rajasthan, whereas actual allocations have been Rs crore (shortfall of 40 per cent of fund requirement), Rs (shortfall of 33 per cent of fund requirement) and Rs crore (shortfall of 25 per cent of fund requirement) for FY , FY and FY 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 where latest available official data on component wise allocations and expenditure for FY and FY 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 2000 Figure 5.3: ICDS Allocation Over the Years in Rajasthan (Rs. in Crore) Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 121

124 such as, pre-school education, health check up. Total fund requirement to cover lakh children under the age of 6; severely malnourished children in 6-72 months age group and 9.78 lakh Pregnant and Lactating Mothers calculated as: Rs crore in both the FY and and Rs crore in FY 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 has been in accordance with the new norms that are applicable for all 38 districts in Bihar from the FY Actual allocations as of FY (the latest available figures on different components wise allocations) is Rs for SNP crore leaving a gap of Rs crore in FY Training components: Total fund required to provide training to the sanctioned CDPOs/ ACDPOs, Supervisors and AWW/AWHs as per the norms stands at Rs crore in FY , FY and FY , whereas a minuscule amount of RS crore has been provided in FY There was a shortfall of Rs crore in FY Maintenance of government owned buildings: There are 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 crore in FY , FY and FY Against this requirement Rs.5 crore has been provided in FY 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 crore, Rs crore and Rs crore in FY , FY and FY respectively which includes salaries of all staff including CDPOs/ ACDPOs, Supervisors and AWWs/AWHs in Rajasthan. a. Salaries of AWW: There are 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 crore FY , FY and FY Against this fund requirement, only a meagre amount of Rs crore has been allocated in FY leaving a gap of Rs 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 /month for Supervisor. Total fund requirement towards salaries of these vacant posts calculated as Rs crore. However, component wise break up of ICDS allocation in FY does not mention about actual funding for salaries of CDPOs/Supervisors. 6. Construction cost of AWC: As per the Annual Progress Report (ICDS & WE) in Rajasthan, 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, 13 th Finance Commission and other similar schemes. The total requirement for construction of building for all AWCs 122 Costing And Budget analysis

125 Integrated Child Development Services (icds) Scheme Figure 5.4: Fund Requirement vs. Actual Allocation in Rajasthan (Rs. in Crore) FY FY FY Fund requirement Actual Allocation calculated as Rs crore against which only Rs crore has been provided in There is a shortfall of Rs crore in FY 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 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 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 crore for ICDS in Rajasthan, that is 7.1 per cent, remained unspent in FY whereas the FY shows a huge under spending of available fund by Rs 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 Table 5.3: Under Utilisation/Over Utilization of Allocated Fund in Rajasthan 9 Rs. In Crore Year Allocation (RE) Expenditure (AE) Amount unspent (7.1%) (45.4%) Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 123

126 experienced under utilization of over 19 per cent of allocation in and 47 per cent in Rs crore has been spent towards Honorarium to Anganwadi Helpers in , 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. 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 and 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. Fig 5.5: Fund Allocation Unspent, an Average of & (In Percentage) ICDS X:State's share 11.2 Construction of AWC 51.9 Honorarium to AWC 7.4 training Programme 55.8 SABALA Supplementary Nutrition ICDS general Costing And Budget analysis

127 Endnotes Integrated Child Development Services (icds) Scheme 1 World Population Prospects Annual Health Survey Fact Sheet by GoI; web: statistics/ AHSBulletins/AHS_Factsheets_2011_12.html 3 Seven 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 4 Report of the Inter Ministerial Group on ICDS Restructuring 2011, Planning Commission of India Expenditure volume II, Ministry of women and child development, Government of India 7 Plan expenditure details for to , Social Security and Welfare Department. Government of Bihar 8 ibid 9 Annual Progress Report (ICDS & WE), , WCD, Rajasthan Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 125

128 126 Costing And Budget analysis

129 Integrated Child Development Scheme (ICDS) Book IV Integrated child protection scheme (icps) Bihar & Rajasthan ( to ) Sarva Shiksha Abhiyan, Integrated Child Development Services Scheme and Integrated Child Protection Scheme 127