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Rashtriya Sam Vikas Yojna
(RSVY)
1.
The Scheme
1.1
The
Backward District Initiative under the Rashtriya Sam Vikas Yojana has been initiated
with the main objective of putting in place programmes
and policies with the joint efforts of the Centre and the States, which would
remove barriers to growth, accelerate the development process and improve the
quality of life of the people. The scheme aims at focused development programmes for backward areas, which would help reduce
imbalance and speed up development.
1.2
This
component will cover 100 districts. The identification of backward districts
with in a State has been made on the basis of an index of backwardness
comprising three parameters with equal weights to each:(i)
value of output per agriculture worker; (ii) agriculture wage rate; and (iii)
percentage of SC/ST population of the districts. The number of districts per
State has been worked out on the basis of incidence of poverty. In addition,
thirty two-districts which are affected by Left Wing Extremism will also be
covered. Fifty Backward District and 16 districts affected by Left Wing
Extremism are being covered in Annual Plan 2003-04.
1.3
The
main objectives of the scheme are to address the problem of low agricultural
productivity, unemployment, and fill critical gaps in physical and social
infrastructure. The District Administration/ Panchayati
Raj institutions accordingly would be required to
prepare a Three-year Master Plan with nested Annual Action Plans. The Plan is
to be based on a SWOT (Strengths, Weaknesses, Opportunities, and Threats)
Analysis, review of ongoing schemes and identification of few lead sectors
wherein state intervention would help the overcome major bottlenecks in
development. The additionality is to be used to meet
local needs through schemes in these lead sectors which would make a dent on
the poverty of the district in a time bound manner.
2.
Release of Funds
2.1
A
sum of Rs. 15.00 crore per year will be provided to
each of the district for a period of three years i.e. a total of Rs. 45.00 crore per district. Funds will be released to the State
Governments on 100% grant basis in suitable installment linked with the
satisfactory progress of the District Plan.
2.2
The
State Government will release the funds received under the programmme
to separate head created for the purpose under the District Rural Development
Agency with in 15 days of the receipt of the said funds. Failure to do so will
lead to forfeiture of subsequent installments and the funds released earlier
being treated as a loan.
3. Delivery
Mechanism
3.1 There is High Level
Committee at the Government of India (GOI) level chaired by Deputy Chairman, Planning
Commission with Finance Minister, Minister of State for Planning, Chief
Minister, Government of Bihar, Chief Minister, Government of Orrisa and Secretary, Planning Commission as Members. This
committee will approve policies regarding initiatives of the Rashtriya Sam Vikas Yojana (RSVY), set the reform agenda for the State
Governments and Periodically conduct a review of the
progress of the RSVY programme.
3.2
There
is an Empowered Committee at GOI level chaired by Secretary, Planning
Commission which will approve the District Plans., monitor and review the
programme, have evaluations and mid-term appraisals conducted and attend to all
other matters relating to the operation of RSVY.
3.3
Each
State Government has to set up a State Level Steering Committee under the
Chairmanship of the State’s Chief Secretary with about five other members. The
Secretaries of the Departments of Finance and Planning, Chief Executive of the
District (Deputy Commissioner or Chief Executive officer of the Zila Parishad), State Level
representative of NABARD and NGO could be members. In the case of districts
affected by Left Wing Extremism, this committee should be including the State’s
Home Secretary. The Committee would get detailed district plans prepared and
recommend them to Planning Commission for concurrence of scheme. It would be
also responsible for coordinating and ensuring synergy between departments and
agencies as well as monitoring of the scheme.
3.4
For
each district plan should be prepared by a District Committee chaired by
the District Magistrate/ CEO Zila Parishad/
Chairperson of the District Planning Committee with the District Superintendent
of Police (in case of Extremist-affected district), District Forest Officer,
local NGO’s other stakeholders, etc. as members.
4. Guidelines for Preparation of
District Plans
4.1 For availing of
assistance under the Scheme, a Three-year Master Plan is to be prepared for each district
with nested Annual Action Plan.
4.2
The
main principal which have to taken into consideration are:
4.2.1 The flow of funds from all
sources namely State Plan, Centrally sponsored schemes, Central Schemes,
externally aided projects etc. are to be indicated along with the specific
scheme for the additionality under the Rashtriya Sam Vikas Yojana. Care should be taken to allocate funds under the RSVY as an additionality only for expanded coverage of schemes for
which funding from other sources including State Plan, Centrally Sponsored
Schemes, Central Schemes are available, on being satisfied about the level of
utilization of available resources.
4.2.2 The benefit from RSVY funds
should be maximized through intersectroal linkages.
RSVY funds should also be used to leverage a larger plan size through
correlation with banking sector and beneficiary contribution.
4.2.3 The cost effectiveness of
all scheme should be carefully considered so that
returns from the funds invested under the scheme are maximized. In other words,
inter-se priorities among individual schemes under a programme should be
decided on merits only. There should be complete transparency in the choice of
scheme and their locations. The prioritised list of
schemes and the reason for taking up the schemes and the criteria for choice of
locations must be made available on the web-site. Similarly all tenders should
be on the web-site.
4.2.4 People’s participation and
involvement of PRI’s, NGO’s and Self Help Groups should be ensured at every
stage including plan formulation, implementation and monitoring.
4.2.5 PRI’s , NGO’s and Self Help
Groups may also be involved in awareness and capacity building, training etc.
and about two per cent of the funs could be utilized for such schemes
4.2.6 Employment related schemes
and vocational training need special attention especially in the district
affected by Left Wing Extremism. However, schemes for self-employment may be
based on credit rather than subsidy. Therefore, each project should be made a
bankable enterprise and subject to appraisal and banking discipline. The
enterprises should be promoted through private/ group initiatives and not
through the government/ government sponsored Cooperative sector. Funds should
not be provided to prop up ailing government/ government sponsored cooperative
enterprises. The aim is to encourage self-employment programmes
for income generating activities through small assistance to Self-Help Groups
towards revolving fund and provision of the required infrastructure and
training inputs. However, subsidy linked schemes may be allowed only if
absolutely essential as a supplemental measure for expanded coverage of a
Central/ State Plan scheme and subsidy should be kept at the same level as that
provided in the case of similar Central Government Scheme. For schemes
involving creation of community assets efforts should be made to ensure a
beneficiary contribution wherever feasible.
4.2.7 Allocation under RSVY may
be made only after exhausting in full the assistance available under various Centrally Sponsored/ Central Plan/ State Plan schemes
including those under KVIC, PMRY, SGSY, SJSRY etc.
4.2.8 Funds under RSVY should be
used for project and programmes and not for
construction or renovation of administrative buildings establishment costs/
staff costs and other such schemes. No new posts are to be created for this progrmme.
4.2.9 All schemes are to be
completed with in the prescribed three-year time frame. No cost over-run will
be permitted. If a project cannot be completed in three years, it can be
included only if the State Government gives a commitment to fund it beyond the
three year period.
4.2.10 It
should be ensured that the schemes are sustainable and assets should be planned
with care so that they are useful and maintained even after the scheme is over.
Special attention is to be given to sustainability of each project. In the case
of community assets, wherever possible future maintenance should be built into
the programme, e.g. if a community hall is constructed, individuals who use the
hall should be charged so that a corpus fund for maintenance can be set up.
4.2.11 Efforts should be made to
concentrate on the poorer pockets and the disadvantaged communities with in the
district.
4.2.12 The Plan should be based on a
vision for the district and not be a mere collection of schemes for which
funding from existing sources I is insufficient.
5. Steps for the Preparation of District
Plan
5.1 The first step would be
to conduct a stock taking of the existing situation in the district namely a
resource inventory, existing flow of funds for various schemes, strengths of
the district, identification of critical gaps and drawing up of schemes to fill
these gaps. In this exercise the PRI’s and NGO’s should be involved. The
potential linked credit plan of the district prepared by NABARD may be used
while preparing the district plan to ensure higher flow of credit to the
district. The institution identified for under taking benchmark
survey/monitoring should be directed to under take the benchmark survey for
critical indicators.
5.2 The Plan should be drawn
up as per the Chapter scheme given below and got approved by the State Level
Committee in consultation with the Principal Advisor/Advisor from Planning
Commission who has been assigned the district.
5.3 The Plan is to be sent
to Planning Commission where it will be examined by the subject Division
concerned and either sent back for modification or put up to the Empowered
Committee for approval. After the approval of the Empowered Committee and
receipt of summary record, the State may sign the Memorandum of Agreement (MOA)
and send it to the Planning Commission for signatures (copy of format of MOA).
A copy of the signed MOA will be sent to the State Government and the first
installment of funds will be released for the district.
6. Chapter Scheme
6.1 Each district plan
should contain an executive summary highlighting district specific problems and
suggested strategy. Each plan document should have the following chapters:
1. Background
2. Resource Inventory
3. SWOT analysis and listing of
critical gaps.
4. Summary of Objectives/Benefits
expected to be achieved after three years.
5. Schematic details including time
and cost schedules quarter-wise.
6. Benchmark Surveys, Monitoring and
Concurrent Evaluation.
6.2. Background
6.2.1 This
Chapter should include the following information:
1. Location particularly in terms of
access to capital city and other large consumption centers.
2. Administrative set up with special
reference to the set up for administering and implementing the backward
district initiative.
3. Basic data on population, density
and socio-economic indicators compared with State and national averages.
6.3 Resource
Inventory
1. Natural Resources e.g. forests,
minerals, rivers and streams, etc.
2. Human resources e.g. Population in
the working age group, level of unemployment, skills available.
3. Infrastructure e.g. roads,
railways, telecommunication, irrigation, credit facilities, hospitals and
health centers, schools and colleges etc.
4. Institutions including vocational
training institutes, research institutions, ICAR institutions polytechnics/ITI
s, engineering colleges, etc.
5. Effective NGO’s, Self Help Groups
etc.
6. Special economic activities of the
district.
6.4 Strengths, Weaknesses, Opportunities and Threats
(SWOT) Analysis and Identification of
Critical Gaps
1. Listing of strengths and
weaknesses and building on the strengths by overcoming the threats.
2. Listing of administrative
structures/rules/laws/, which hamper development.
3. Identification of areas (spatial),
which require specific attention.
4. Identification of
communities/groups, which need specific interventions.
5. Identification of three four leads
sectors.
6. Identification of critical gaps in
these sectors.
Note: The district
plan should indicate whether scheme should be concentrated on the poorer
pockets with the district or should flow to all parts of the district.
Similarly, a decision should be taken whether certain groups/ communities
deserve specific attention.
6.5 Schematic Details
1.
Special
focus may be given to the following sectors:
Ø
Land
and water management including check dams, revitalization of traditional water structures,
small lift irrigation projects, mini diversion weirs, etc.
Ø
Health
infrastructure particularly strengthening of ANM/ Anganwari
centers and provision of facilities for institutional deliveries.
Ø
Education
infrastructure
Ø
Augmentation
of infrastructure for vocational training using the outreach mode in order to
upgrade economically relevant skills such as repairs of electrical goods,
plumbing, small fabrication, motor cycle/ pump repairs, etc. as per the
emerging demands in the market as well as local artisan skills in handlooms,
sericulture, beekeeping, pottery, woodwork, toy making and other traditional
disciplines, etc.
Ø
Increase
in income from agriculture and allied activities through intensification of
agricultural and horticultural practices in compact areas particularly in all
the command area for optimal use of water resources, introduction of high value
crops suited to dry land farming/local conditions; improving yields from
dairying, small animals and pisciculture, etc.
through back-up of veterinary facilities and marketing infrastructure.
Ø
Filling
in critical gaps in physical infrastructure such as vital road linds rural electrification etc.
Ø
Deficiencies
identified in Potential Linked Credit
Plan prepared by NABARD for the district should be taken care of.
Ø
The
district may also choose to use up to 15% of the funds on maintenance of assets
in the health, education and veterinary sectors. However, visual documentation
of the assets before and after the maintenance would have to be furnished.
Ø
In
the case of districts affected by Left Wing Extremism, 7.5% of the total outlay
may be earmarked for security related project e.g. Construction of bridges/
roads for providing connectivity to the police forces/ para-military
organization. Further, police / paramilitary organization may also be involved
in the implementation of schemes if found appropriate/feasible.
6.6 Benchmark Survey / Monitoring
6.6.1 An institution either with
in or in close proximity to the district, should be identified for the purpose
and a sum of Rs. 4 to 5 lac allocated on annual basis
for carrying out benchmark surveys for taking up monitoring and midcourse
evaluation of the programme. As a first step existing facilities / resources
should be surveyed which will provide a benchmark for future
assessments. An MIS should be prepared which will indicate the progress
of schemes for each quarter in physical and financial terms. The relevant
output indicators for each project should be indicated on quarterly basis
against which progress can be indicated for evaluation after the end of the
scheme period. A strict monitoring schedule should be a par of the
implementation process itself. The schemes should be monitored by the State
Level Committee / NGO’s and quarterly progress reports submitted to Planning
Commission for review by the Empowered Committee and the High Level Committee.
6.6.2 A website has to be created
for each district which will give the background information for the district,
the district plan, results of the benchmark survey and the MIS which has been
developed. This should be updated on weekly basis to show the progress of the
schemes.
6.6.3 The State Government may
also provide relevant visual recordings (Photographs videos) to show the
position before the projects are undertaken and after completion of the
projects and make an assessment of the impact of the RSVY in improving the
economy of the district concerned.
7. Illustration of Steps to Prepare the District
Plan
7.1 Instead of investing
RSVY funds thinly across all sectors, it would be desirable to identify a few
sectors in the comparatively backward areas of the district for special
intervention in order during the three-year period.
7.2 The steps enumerated in
the table below will be of help in conducting this exercise.
1.
Identify
three-five lead sectors keeping in view the felt needs of the backward regions
of the district.
2.
Identification
of critical gaps in each sector.
3.
Requirement
(Physical and Financial)
4.
Existing
schemes in the sectors.
5.
If
yes, then assessment of existing flows, existing targets.
6.
Expanded
targets to be achieved with RSVY funding (along with phasing)
1.
Identify
links required to others sectors and critical gaps in those e.g. if agriculture
is identified as the lead sector and crop diversification scheme is introduced,
efforts have to be made to ensure that the entire chain from supply of planting
material to development of a competitive market is tied up. Besides, gaps in
infrastructure relating to connectivity and assured supply of electricity have
to be filled up.
7.3 The entire chain of selection of scheme and
inter-sectoral linkages may be undertaken. The
following box gives a few illustrations: -
Identification
of scheme in lead sectors and building of backward and forwarded linkages.
Example 1 : Sector livelihood
Support: Identification of level of unemployment; identification of self help
groups which are credit worthy; identification of skills for which there is a
demand, training in skills thus specified, formulation of pragmatic training progaramme , etc. Steps to establish credit linkage of SHG’s with the Banks. The availability of funds from
existing scheme should be assessed and gaps filled through RSVY. The guidelines
for SGSY should be followed. However, all schemes should be made bankable. No
subsidy will be provided under RSVY and support would be invited to revolving
fund assistance, training/ skill development and infrastructural support.
Example 2 : Irrigation: Current sources, potential in
the district requirements, current sources of funding, status of ground water,
gaps to be met from RSVY. Scheme details e.g. Water Harvesting structures/
Check Dams/ Lift points / Dug wells with pumps – area to be covered, cost
involved, cost-benefit ratio, funding pattern (ratio of subsidy/ credit/
beneficiary contribution), phasing process of handing over operation and
maintenance to the beneficiaries/ user groups. Sustainability, particularly,
benefit likely to accrue in terms of increase in income so that O& M costs
can be paid by the beneficiaries, etc. Further concerted efforts need to be
made to ensure that the potential created is utilized properly by providing for
on farm development programmes such as field
channels, installation of water regulators and agricultural extension
facilities and package of inputs in compact area which give impetus to crop
diversification and adoption of high value crops wherever suitable. Further
forward linkages to markets may also be provided. If road links are planned in
the district, the area to be served by the check dam/ other are maximized . If shallow tubewells
or energisation of pumpsets is
contemplated, the need for strengthening the electricity distribution
infrastructure of the area should be looked into.
Example 3: Sector Education : Existing facilities should be mapped. Locations
with absence of facilities should be identified. Fund available under scheme
such as Sarva Shiksha Abhiyan and facilities created / being created there under
should be identified. Existing gaps should be identified such as class room,
laboratories, libraries, sports facilities, play fields etc. RSVY funds may be
used for such scheme. If level of female education is poor, facilities such as
hostels may be considered. However, occupancy position of existing hostels
should be considered first. Further, funds for salary of hostel staff, teachers
and stipends should be tied up.
Example 4: Roads: Identification of uncovered
habitations/ up gradation
required / Missing culverts, etc. Setting of targets e.g.
coverage of all 1000 + settlements and Gram panchayat
HQ and important marketing / growth centers. Identify funds available under
PMGSY, CRF etc. as well as funds, which could be made available under RSVY . Cost norms should be checked and should not exceed
PMGSY norms. Efforts should be made to take up roads with maximum benefits
first e.g. roads, which connect schools, health centers and mandis.
All roads must be completed with in three years.
Source: Planning Officer Sirsa