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Monitoring of MPLADS Works Porbandar

AFC India Ltd. (formerly, Agricultural Finance Corporation Ltd.) Page 1

CONTENTS

Page No.

Abbreviations 1

Executive Summary 2

Chapter I Introduction 4

Chapter II Approach & Methodology of the Study 9

Chapter III An Overview of the Implementation of MPLAD Scheme inthe District

16

Chapter IV Analysis & Results of Physical Verification of Assetscreated under MPLAD Scheme

24

(i) Sample MPLAD Works included in the Study 29

(ii) Extent of Adherence to MPLAD SchemeGuidelines

33

(iii) Social & Economic Impact of the Assets created 47

Chapter V Issues, Suggestions and Recommendations 44

Annexure Summary of all Sampled Works with Photographs


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Abbreviations

AFC Agricultural Finance Corporation Ltd.

CEO Chief Executive Officer

DA District Authority

EE Executive Engineer

GOI Government of India

IA Implementing Agency

LS Lok Sabha

RS Rajya Sabha

MoU Memorandum of Understanding

MP Member of Parliament

MPLADS Member of Parliament Local Area Development Scheme

NGO Non-Government Organization

PCs Personal Computers

PRI Panchayati Raj Institutions

PWD Public Works Department

SC Scheduled Caste

ST Scheduled Tribe

UA User Agency

UC Utilization Certificate

WCR Work Completion Report

ZP Zilla Parishad


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EXECUTIVE SUMMARY

MPLAD SCHEME

1. The MPLAD scheme introduced since 1993-94, is a plan fully funded by the

Government of India. The objective of the Scheme is to enable Members of Parliament to

recommend works of developmental nature with emphasis on the creation of durable

community assets based on the locally felt needs. Under the Scheme, yearly allocations,

currently at the rate of Rs. 5 crore per Member, are provided for undertaking developmental

works within an electoral constituency. The scope of the scheme both in terms of increase in

allocation and coverage of projects has been enlarged from time to time in the light of the

experience gained from its implementation. MPs can also recommend some works outside

their constituencies/States for creation of assets permissible under the guidelines.

2. The MPLAD Scheme has created various durable assets such as drinking water

facility, education, electricity, health and family welfare, community centers, irrigation, roads,

pathways and bridges, etc. for the benefit of the local community. As at the end of August,

2012, about 15.32 lakh works are reported to have been recommended, 13.50 lakh were

sanctioned and about 12.14 lakh completed, since the inception of the Scheme. A total

amount of Rs. 26881.75 crore had been released by the Ministry of Statistics & Programme

Implementation (MoS&PI), GoI to different States and UTs under the Scheme. Against this

allocation the States/UTs had sanctioned work of the order of Rs.26512.77 [98.63%].

PRESENT EVALUATION STUDY

3. The Scheme has been in place for a considerable period of about two decades to

observe long term outcomes. The GoI, Ministry of Statistics & Programme Implementation

[MoS&PI] has assigned the responsibility to Agricultural Finance Corporation Ltd [AFC] for:

[i] evaluating the role of different Agencies in the implementation of the Scheme [ii]

undertaking physical verification of Assets created, [iii] examining adherence to GoIguidelines on the implementation of the scheme and [iv] making an assessment on the uti lity

and impact of the Scheme to improve project delivery. With this purpose around, the AFC

designed and planned necessary tools to study process as well as the outcomes of the

Scheme to find out as to how well the programme has gone and whether it is yielding the

desired benefits or improvement in outcomes

METHODOLOGY ADOPTED IN CONDUCTING STUDY

Before going for the full scale data/information collection, AFC mounted a Pilot study in three

selected districts viz. Moradabad and Chitrakoot of Uttar Pradesh and S.B.S. Nagar in


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Punjab to develop an appropriate study design and data sources - both quantitative and

qualitative, that would facilitate drawing valid conclusions. The District had been sanctioned

a total 58 works under MPLAD since the inception of the Scheme in 1993-94 to 2011-12 out

of which 58 works have been completed [100..%]. A sample of 58works based on judicious

mix of works under different sub heads of the Scheme covering the period 2000-01 to

2011-12, was randomly selected which fairly represents the universe of the study to draw

broad inferences. The non-availability and / or non-cooperation of some of the respondents

have limited the scope and coverage of this study. The data relating to the implementation of

the programme was also not presented in an organized manner and the study team had to

scan through various records of the DA, IA and UAs for drawing inferences.

MAIN EVALUATION FINDINGS

1. The District Collector has been designated as the Implementing District Authority and he

is coordinating and supervising of implementation of works in the District.

2. A sample of 58 works executed during the period 2000-01 to 2011-13 drawn in proportion

to the works executed under different sectors is fairly representative of the population to

draw general inferences on the implementation and impact of the programme. All the

Sectors except Electricity Facility, Health & Family Welfare, Non- Conventional Energy

Sources and Animal Care Sectors where there was no work executed or the execution was

insignificant, are covered under the sample.

3. Of the 58 samples selected from the completed works, during the period 2000-01 to

2012-13, about two thirds of the projects were recommended by the Lok Sabha MPs. There

has not been any work recommended by any Nominated MP in the District.

4. 3Of the 58 samples selected from the completed works, during the period 2000-01 to

2012-13, 28 works [47.46%] with a financial outlay of Rs. 120.60 lakh [40.97%] were

recommended by the LokSabha MPs and 58 works [100%] costing Rs. 189.76 lakh [100%]

5. There has been any work recommended by any Nominated MP in the District. MPs are

required to earmark 15% and 7.5% of the amount of their annual recommendations of works

to the District Authorities, for execution in the SC/ST habitation respectively. All the worksare executed in the ST area, as the district is predominantly inhabited by ST population. In

NPorbandar District 77.59% of the works are executed in the rural areas costing Rs. 144.27

lakh [76%] and 94% of the works are executed in the rural areas costing Rs. 176.47 lakh

[93.00%]

6. Majority of 35 work [60.34%] involving an amount of Rs. 113.15 lakh [59.62%] in thecost category of Rs. 5 lakh to Rs.25 lakh, followed by 8 works [13.79%) with a financialoutlay of Rs.27.66 lakh [27.66%] were in the cost range of Rs.2 lakh to Rs.5 lakhs.


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7. The DA can identify suitable Agencies which include, Societies/Trusts/NGOs, PRIs/LMBs

and Government Departments/Agencies as Implementing Agencies [IAs] to implement works

under the programme. Mainly Govt.Agencies been considered as IAs and a large majority of

works -32 [51.7%] with the financial outlay of almost in the same proportion [55.72%] have

been got implemented through them.

8. DA has been following the established work scrutiny, technical work estimation norms and

other administrative procedure as laid down by the State Govt. in the execution of work. In

this process, DA had rejected 6 works recommended by the MPs.

9.Of the total 58 sample works, 58 [100%] projects have been sponsored by the LS MPs .Of

the sample works in respect of LS MPs, Totally of 58 works [100%] involving an amount of

Rs. 189.76 lakh [100%] have been got executed through the Government

Departments/Agencies, while 32 works [55.72%] with a financial outlay of Rs. 100.9 lakh[8.09%] through the PRIs/LMBs and only 16 [23.63%] costing Rs. 1 lakh through

Societies/Trusts. Like-wise, in case of LS MPs, 11 [73.33%] were executed by Government

departments/agencies, 32 [51.7%] each by PRIs and only 16 [27.60%] Societies/Trusts

costing Rs. 20.72 lakh [20.42%],

10. In respect of 36 works, tendering process was not adopted by Implementing Agencies.Out of theses 36 cases, in respect of 3 works, work order was issued directly to unemployedgraduate engineers. It was informed that the procedure followed is as per the norms of StateGovernment Policy. All 9 works, without calling open quotations, work orders were issueddirectly based on single quotation for each work from the same firm. One single firm wasallotted all 5 works without ensuring the competitiveness of the quotations received bycalling open quotations. The work orders were issued by passing separate resolution foreach work by Standing Committee indicating reason that the only firm having expertise in thefield was allotted these works. It was informed that the procedure followed was as per thenorm of TDO Porbandar.

12 Proper maintenance of the Assets has been a problem. A majority of 8 Assets [13.79%]was found partially/badly maintained. A large majority of 55 of the assets [90.16%] werelocated at appropriate places.

13. Of the total 58 sample works, about 16% works had been sanctioned to the

Societies/Trusts of the Educational Institutions and all these entities were found eligible for

aid under the Scheme. DA had taken a firm commitment from all these Societies for proper

upkeep and maintenance of the assets sanctioned to them. He has also obtained the

requisite affidavit from the concerned Societies/Trusts on the non interest of the

recommending MPs in the beneficiary Society/Trust obviating scope for the misuse of the

facility.

14. Maintenance is an important consideration for deriving lasting benefits from theinvestments made. The overall position of maintenance of the assets created under the


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programmed was satisfactory. Only a few assets - 6 [11%] involving an amount of Rs.

36.92[13%], were found to be deficient in maintenance. Funds constraint was pleaded to be

the major reason for such a situation more particularly with the Gram Panchayats to which

majority of about three fourths of the sample assets have been transferred.

15. Of the 58 sample works undertaken for physical verification 11 works [20%] involving an

amount of Rs.52.38 lakh [18%] were observed to be ineligible mainly created in the vicinity

of religious places and also being used for religious activities.

16. Monitoring is very important for the stakeholders to know the extent to which projects

are meeting their objectives and leading to their desired effects. The DA, however, did not

have any definite Monitoring Mechanism put in place. There were no records available in the

DA office in regard to the inspections of MPLAD Scheme works reported to have been

carried out by the DA. The review meetings to observe the progress of the scheme are being

held generally as and when required and are clubbed with other district level meetings andnot on any structured manner. The IAs were generally submitting Monthly Progress Reports

[MRPs though not at regular intervals.

17. The DA has opened separate MP-wise Savings Bank Accounts in Nationalized Banks

as per scheme Guidelines. All the MPLADS funds received from the GoI are deposited in

the bank accounts and the interest accrued thereon is also being utilized for the

recommended works.

18. DA is also maintaining a different MP-wise books of accounts under MPLAD. The

records i.e. database maintenance of the works from 2008 onwards only were maintained asper the prescribed format. However, much of the information in respect of many works was

not updated in the related columns of the Head-wise Asset Register.This made the Study

Team exercise of cross-checking of information/data very difficult. In the absence of

availability of files/records the team could not undertake cross verification in one case

despite its best efforts.

ISSUES, SUGGESTIONS AND RECOMMENDATIONS

On the basis of the issues and concerns emerging from the evaluation study on the

implementation of the MPLAD Scheme in the District, the following suggestions and

recommendations are made:

1. Maintaining Suggestive shelf / basket of projects in the District

The DA Office needs to take immediate steps to compile a suggestive shelf/basket of

projects in the District after ascertaining the views of all the stakeholders to facilitate the

MPs to identify appropriate areas and sectors for scheme interventions. The list may be

updated periodically.

2. Maintaining of separate data in respect of SC/ST areas


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The DA should build-up entire data-base properly and ensure that the stipulated

condition regarding coverage of works in SC areas at 15% and ST areas at 7.5% of the

funds earmarked for the year, is strictly adhered to while implementing MPLAD Scheme

in the district.

3. Observance of stipulated time frame between recommendation-sanction and

execution-completion of works

The DA needs to streamline its systems and procedures to ensure that all the proposals

received from the MPs are disposed of within the stipulated period.

4. Augmentation of Staff in DA Office / establishment of MPLADS Cell

The position of the staff engaged in MPLADS works may be reviewed, and

shortage/readjustment removed/done, based on the standard work norms to ensure that

the scheme is implemented smoothly and effectively.

5. Training of District Level Functionaries

The District should organize training programmes / sensitization workshops, on regular

basis to keep the concerned members of the staff familiar and updated on various facets

of the implementation of the scheme which is undergoing many changes from time to

time.

6. Monitoring Mechanism

A sound Monitoring Mechanism which is critical for the success of the programme needs

to be put in place by the DA by improving all its tools. The DA should inspect all the

works sanctioned in favour of Societies/Trusts and at least 10% of other works as per

scheme guidelines in addition to the visits of the Senior Officers of the IAs to ensure

satisfactory work progress as per their prescribed procedures, specifications and time

schedules. The IAs should submit Monthly Progress Reports on time. The exclusive

Review Meetings should be organized regularly not beyond quarterly intervals to

facilitate communication and networking between the partners about the project

development, deliverables, outputs or issues and planning. The PRIs should also be

made a part of the planning and monitoring.

7. Assets Management

It becomes imperative that appropriate arrangements should be put in place for the

community durable assets and basic facilities created under MPLADS in order to ensure

that the interventions made remain effective and sustainable. No work may be


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sanctioned without creating a local institutional set-up with user participation, which has

a stake in the maintenance.

8. Erecting of Plaques at the work sites

It should be made mandatory for the IAs to install /paint well positioned permanent

Plaques on Stone/Metal with necessary inscription, at all the work sites for bringing

transparency and public awareness in the system.

9. Maintenance of Input Formats

The DA/IAs need to improve their present record keeping system to meet their

accountability, transparency and compliance requirements. DA should ensure

maintenance of IV-A, B and C and IV-D input formats for each work. The head-wise

Asset Register with details of the works sanctioned under MPLAD Scheme, being

maintained by the DA, should be complete in all respects and updated. The feasibility of

shifting from a fully paper based records system to a predominantly electronic system

may be explored for ensuring prompt and accurate information.

10. Audit of the MPLADS Works

Institutionalization of this process of auditing of MPLADS is essential to uncover the

issues, concerns and challenges encountered in the execution of a project. DA should

draw a time bound programme for auditing of works through a proper agency, as

required under the scheme.

11. Use of Website

The DA is required to take immediate steps to upload up to date details of all the MPLAD

Scheme works on the website [www.mplads.nic.in] to bring greater transparency and

accountability in the governing process and delivery of service to the citizens. A

temporary cell should be created for this purpose, to complete the updation process in a

time-bound manner, if felt necessary

12. Setting up of Facilitation Centre in the District

Urgent steps need to be taken for developing of a Facilitation Centre equipped with

computer and internet facilities, to make available all the relevant information at one

place for the effective implementation of the programme.

13. Documentation of Pre-work Condition

The DA should initiate steps to place on record some photographs of the pre-work

condition of the proposed work location and document it for records to measure theimpact of the programme.


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14. General Aspects

DA should follow all essential guidelines such as maintaining proper records of files,

obtaining prescribed commitments & affidavits , sanctioning only eligible works, initiating

action against the defaulting agencies, keeping in view the ceiling amount of aid to

Societies/Trusts etc. to make the scheme result-oriented, time bound and cost effective.

15. Introducing concept of Social Audit

There is a felt need and desirability of developing a social audit mechanism for the

effective implementation of the MPLAD scheme as a reform tool aimed at strengthening

accountability and transparency in the implementation of projects and policies.


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CHAPTERI

INTRODUCTION

NEED FOR BASIC INFRASTRUCTURE

The lack of adequacy of basic infrastructure, both social and physical, with a large variation

across the States and regions, continues to remain a major constraint to the growth process

in India. The huge shortage of basic infrastructure and basic amenities has a wide range of

impacting on individuals, households and community in terms of both income and other

quality of life indicators. The infrastructure deficit holding back development more particularly

in rural India remains a matter of great concern given its slow and uneven pace. The multi-

level decentralized planning framework has in most of the States not percolated below the

State level. The paucity of funds with the State Governments leads to only a limited flow of

resources to the local level and the delivery programme is often found out of touch with local

needs and aspirations.

Given the significant positive linkages of infrastructure to economic and social growth, the

MPLAD Scheme has emerged as a practical solution to the problem of the areas suffering

from neglect and under development. The scheme seeks to address the issue of inequity in

development by extending further flow of resources to the local level. This additional source

of investment in infrastructure to meet the felt needs of the local community not reached as

yet for various reasons would have an important advantage to focus on local area specificproblems in the complex socio political milieu of this country. Under the Scheme, yearly

allocations are provided for undertaking developmental works within an electoral

constituency. The funds allocated to the MPs can serve as funds intended to facilitate

structural adjustment of specific sectors, regions, or combinations of both the development

of which is lagging behind.

SCHEME IN BRIEF

The MPLAD scheme introduced since 1993 is meant to help MPs execute small works of a

local nature to meet the urgent needs of their constituents. The objective of the Scheme is to

enable members to recommend works of developmental nature with emphasis on the

creation of durable community assets based on the locally felt needs to be taken up in their

constituencies. Preference under the scheme is given to works relating to national priorities,

such as provision of drinking water, public health, education, sanitation, roads, etc. The

MPLADS is a plan fully funded by the Government of India. Under the scheme, each

Member of Parliament has the choice to suggest to the District Authority work to the extent

of his/her annual entitlement of funds to be taken up in his or her constituency. While elected

members of Lok Sabha can suggest developmental works in their constituency, the elected

members of Rajya Sabha can recommend works in one or more districts of their State. The


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nominated members of Parliament can recommend works in one or more districts anywhere

in the country.

The scope of the scheme has been enlarged from time to time in the light of the experience

gained from its implementation. Earlier, the MPs were able to recommend only those

projects outside the state or UT from which they have been elected that are relating to

cultural and educational activities associated with their own state or UT. Now, the work ambit

would cover a much larger area as prescribed under the scheme. The change is aimed at

fostering greater unity among states and allowing MPs to assist people even outside their

own state. This change has been brought to allow availability of larger MPLADS funds for

developmental activities for general public. The MPs can also transfer the funds for

undertaking rehabilitation works in the area affected by severe natural calamities. The recent

convergence of scheme with MGNREGA will lend mutual support to both the schemes i.e.

MGNREGA and MPLAD in achieving their objective of creating more durable assets.Like-

wisethescheme of cash awards to three best Innovations every year under One MP One

Idea will encourage innovations in the country. The MPs have, however, only a

recommendatory role under the scheme. The designated District authorities implement the

recommended works by following the established procedures of the concerned state

government.

Under the Scheme, yearly allocations are provided for undertaking developmental works

within an electoral constituency. The scheme was started with a modest allocation of an

amount of Rs. 5 lakh to each Member of Parliament, in 1993-94. This was increased to Rs. 1

crore in 1994-95 to Rs. 2 crore in 1998-1999 and further to 5 crore during the year 2011-12,per MP, per annum.

The Ministry of Statistics and Programme Implementation is responsible for the policy

formulation, release of funds and prescribing monitoring mechanism for implementation of

the Scheme. At the State level, a Nodal Department has been created which is responsible

for coordinating, monitoring and supervising the implementation along with all other related

Departments and the District authorities. The Union Ministry issued a set of detailed

guidelines covering the concept, implementation and monitoring of the Scheme, first in

February 1994 and revised in December 1994, February 1997, September 1999, April 2002,

November 2005 and lastly in August 2012 in the light of experience gained over the years.

The roles of the Central Government, State Government, District authorities and

implementing Agencies have been clearly demarcated in the guidelines.

The MPLAD Scheme is generally viewed as a positive potential trend in the delivery of

infrastructure services to contribute to the regional development in multi-sectoral planning

process adopted in the country. As observed by the Honble Supreme Court, the MPLAD

Scheme, in fact, provides the much-needed advantages of public choice without entering

into the private domain and will bring in the much needed efficiency and effectiveness in

local governance.


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The MPLAD Scheme is thus a practical solution to this problem of neglect and

underdevelopment areas and hence emergence of a new paradigm in bottom up planning

and allocation of resources approach, provided it is implemented in its true spirit as

envisaged under its guidelines. The Scheme has started catching attention of the world. A

delegation of newly created South Sudan visited India in July, 2012, to study the Indian

parliaments constituency development fund scheme for replicating it back home.

MPLAD SCHEME MILESTONES

[I] Physical Achievements

The MPLAD Scheme has created various durable assets such as drinking water facility,

education, electricity, health and family welfare, community centers, irrigation, roads,

pathways and bridges, etc. for the benefit of the local community by meeting their various

developmental needs and aspirations. As at the end of August 2012, 15.32 lakh works are

reported to have been recommended, 13.50 lakh were sanctioned and about 12.14 lakh

completed, since inception of the Scheme. The percentage of cumulative works completed

to cumulative works sanctioned, is 89.86%. This is indicative of the fast sanction of works by

the District Authorities.

[ii] Financial Achievements

As on 19 November 2012, a total amount of Rs. 26881.75 crore had been released by the,

MoS&PI, GoI to different States and UTs. In this release of funds, UP had the lions share of14.27%, followed by Maharashtra [8.52%], Andhra Pradesh [7.96%], West Bengal [7.27%],

Tamil Nadu [7.20%], Bihar [6.70%], Madhya Pradesh [5.32%] and Karnataka [5.00%]. These

eight States together had as much as 62.24% share in total funds released under the

Scheme. This is almost in proportion with the strength of the MPs in these States i.e. UP -

14.30%, Maharashtra -8.63%, Andhra Pradesh -7.73%, West Bengal - 7.47%, Tamil Nadu -

7.35%, Bihar - 7.22% , Madhya Pradesh - 5.15% and Karnataka - 5.15%, of the total

number of the existing elected Lok Sabha and Rajya Sabha Members of the Parliament.

The UT of Lakshadweep had the minimum share of 0.11% closely followed by Chandigarh

and A&N Islands each with 0.12% share. Amongst the States, Sikkim [0.28%] & Mizoram

[0.28%] had the minimum share closely followed by Nagaland [0.29%] in the total release.

Amongst the States, Sikkim [0.28%] & Mizoram [0.28%] had the minimum share closely

followed by Nagaland [0.29%] in the total release. Out of the total released funds of Rs.

26881.75 crore, an amount of Rs.372.05 crore [1.40%] had been released in favour of the

nominated Members of Parliament who can recommend work anywhere in the country,

under the programme. Besides above, an additional amount of Rs.827.47 crore [3.08%] in

the form of interest accrued was also available to the States/UTs.


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Against the total allocation of Rs.26881.85 crore, the States/UTs had sanctioned work of the

order of Rs.26512.77 [98.63%]. The progress in the sanction of works may be taken as

satisfactory.

As many as 13 States/UT [37%] viz. Kerala [116.23%], Chandigarh [114.32%], Pondicherry

[109.11%], Sikkim [107.44%], Tamil Nadu [106.56%], Gujarat [106.23%] , D & N Haveli

[105.65%] , Goa [105.25%], Jammu & Kashmir [104.57%], Maharashtra [104.29%], Delhi

[102.96%], A & N Islands [102.70%] and Andhra Pradesh [102.58%], were the high

performing States sanctioning works more than the funds released to them. Daman & Diu

and Nagaland with 86.68% and 68.7% of the works sanctioned against the amount released

were at the bottom of the list. The works sanctioned against the release of funds in respect

of the remaining States/UTs ranged from 90.98% in case of Jharkhand to 98.68% in case of

Rajasthan.

The utilization of funds is the basic indicator of the performance and assumes paramount

importance. As against the sanctioned works worth Rs. 26512.77 crore, an expenditure of

Rs.23934.61 was actually incurred which works out to 89.4%. While A & N Islands with

105.19% of utilization of funds topped the list, Daman & Diu was at the bottom of the list with

82.29% rate of utilization, closely followed by Jharkhand [83.99%], Orissa [84.71%] and

Bihar [84.79%]. In the remaining States/UTs, the utilization of funds was of the order of

85.18% in case of Uttaranchal to 97.11% in respect of Lakshadweep. The unspent balance

of Rs 3774.59 constituted 11.36% of the total available funds of Rs. 27709.20 crore with the

States/UTs for execution of works. The percentage utilization of funds over release is

reasonably good.

The share amongst the elected Lok Sabha, Rajya Sabha and Nominated Members of

Parliament in the total release of the funds of Rs. 26881.75 by the GoI under the

programme, was of the order of Rs.18832.85 crore [70.06%], Rs 7676.85 crore [28.56%]

and Rs 372.05 crore [1.38%] - Lok Sabha: 65 crore [0.24%] and Rajya Sabha: Rs.307.05

crore [1.14%] respectively. The corresponding figures of sanction of works in respect of

LS , RS MPs , being Rs. 18801.29 crore [99.49% ] - Elected : Rs.18730.56 crore [ 99.62%]

& Nominated Rs. 70.73 crore [0.38%] and Rs.7711.44 crore [96.59%] Elected: Rs.7423.85

crore [96.27%] & Nominated : Rs.287.59 crore [3.73%] respectively. The amount utilized

against sanction was of the order of Rs.18730.56 crore [99.49%] in respect of Lok Sabha

MPs Elected: Rs.18730.56 crore [99.62%] & Nominated : Rs.70.73 crore [0.38%] and

Rs.6932.55 crore [86.83%] Elected: Rs.6674.11 crore [96.27%] & Rs.258.44 crore

[3.73%] in case of Rajya Sabha MPs.

Of the total unspent balance of Rs. 3774.59 crore, an amount of 2432.72 crore [64.45%] -

Rs.2427.11 crore [64.30%] - & Rs.5.61 crore [0.15%] related to the Lok Sabha Elected &

Nominated MPs and the rest Rs.1341.87 crore [35.55%] Rs.1282.40 crore [33.97%] &

Rs.59.47 crore [1.58%] to Rajya Sabha Elected and Nominated MPs respectively.


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The evaluation study seeks to assess the role of different stakeholders in the implementing

the scheme and the utility and impact of the scheme on the local community. The evaluation

model is explained in the chapter that follows.


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CHAPTERII

APPROACH & METHODOLOGY OF THE STUDY

BACKGROUND OF THE PRESENT STUDY

The Government of India as a response mechanism to the demand of the general public

voiced through the MPs for provision of certain basic facilities, including basic community

infrastructure in their areas, introduced MPLAD Scheme in 1993-94. The objective of the

Scheme is to enable members to recommend works of developmental nature with emphasis

on the creation of durable community assets based on the locally felt needs to be taken up in

their constituencies. Under the Scheme, yearly allocations are provided for undertaking

developmental works mainly within an electoral constituency. All works to meet the locally

felt community infrastructure and development needs with emphasis on the creation of

durable assets in the respective constituency are permissible under MPLADS, except certain

prohibited works enumerated in the guidelines.

The Scheme has been in place for a considerable period of about two decades to observe

long term outcomes. A large number of about 15.32 lakh works have been recommended,

13.50 lakh sanctioned and 12.14 lakh completed since the inception of the programme till

August, 2012, under different sectors such as drinking water facility, education, electricity,

health and family welfare, community centres, irrigation, roads, pathways and bridges, etc.A few evaluation studies have since been undertaken by different Agencies. The need has

been felt for further outcome evaluations to assess the merit, worth, side effects and

sustainability of the Scheme. It is in this backdrop that the GoI, Ministry of Statistics &

Programme Implementation [MoS&PI] which is responsible for policy formulation, release of

funds and prescribing monitoring mechanism for implementation of the Scheme assigned

the responsibility of an independent, concurrent and qualitative physical inspection of the

works undertaken under the Scheme, to Agricultural Finance Corporation Ltd [AFC]. With

this purpose round, the AFC has designed and planned to study process as well as the

outcomes of the Scheme to find out as to how well the programme has gone and whether it

is yielding the desired benefits or improvement in outcomes.

BROAD OBJECTIVES OF THE STUDY

The broad objectives of the monitoring study of MPLADS works instituted by the Ministry are

indicated below:

Evaluating the role of the Implementing Agency in the Success of the Scheme

Undertaking physical verification of the assets created


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Examining adherence to the Government of India guidelines on implementation of

the Scheme

Assessing utility and impact of the Scheme on aspects like environmental, cultural,

social, etc. so that the assets created prove to be truly beneficial to the community in

the long run and lead to sustainable development.

APPROACH AND METHODOLOGY

It is always gainful to conduct a pre-test or pilot study before going for the full scale

data/information collection. A Pilot study was, therefore, mounted by AFC in three selected

districts viz. Moradabad and Chitrakoot of Uttar Pradesh and S.B.S. Nagar in Punjab during

the period 10th to 14th September 2012 to refine the design and test the availability, reliability,

and appropriateness of the data/information for the proposed study. The study focused on

ascertaining the nature and type of data available at field level as also the coordination and

the operational aspects pertinent to the study, the pattern of utilization of funds, quality of

projects and the local factors influencing the choice of projects under MPLAD scheme. Based

on the findings of this exercise as also in keeping with the Guidelines on MPLADS issued by

the Ministry, a Study Module on Monitoring of MPLADS Works was developed by AFC by

selecting appropriate study design and data sources that would facilitate drawing valid

conclusions. It is intended to facilitate proper conduct of the assignment in conformity with

the terms and service requirements of the Ministry.

Keeping in view the major objectives of the study, the terms of reference and the Govt. ofIndia Guidelines on MPLADS, the approach & methodology of the assignment has been

drawn up as under:

APPROACH

Universe of the Study

The MPLADS works falling within the administrative boundary of the selected district

were the universal set for drawing the sample of works.

All the works of Lok Sabha MPs and Rajya Sabha MPs in that district under MPLAD

scheme since the year 2000 were covered in the universe from which sample have

been drawn.

Sample Size for Field Monitoring

The composition of the sample is as under:

All works costing Rs.25 lakhs and above

Fifty [50] works in the District each involving a cost of Rs. 5 lakh and above


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In addition to above, a few works sanctioned to Trusts/Societies

A few works sanctioned in areas inhabited by SCs/STs.

Sample Profile

The sample is drawn in such a way that it reflects a judicious blend of the following

parameters:

Implementing Agency-wise completed works

Year-wise completed works

Cost of works

MP-wise works [i.e. Lok Sabha and Rajya Sabha]

Area-wise works Rural, Urban

Sector-wise works [Drinking Water, Education, Electricity, Health & Family

Welfare, Non-conventional Energy Sources, Roads/Bridges/Pathways,

Sanitation & Public Health, Sports and Animal Care, Other Public Facilities etc.]

Some works on which complaints have been received

A few works with more than 2 years of completion period

METHODOLOGY

Study Tools

Suitable formats have been developed to collect basic data on MPLADS works, details of

samples, roles of related agencies, etc. The tools are comprehensive enough to yield

necessary information in order to arrive at a definite conclusion about the quality of the data.

The Study Tools are in 3 parts

1) Basic Data Formats for selection of sample MPLADS works in each district

2) Primary Data Schedules - for collection of primary data from various

stakeholders namely, District Authority, Implementing Agencies, User Community

etc.

3) Report Formats Output Tables for incorporation in the report for meaningful

analysis and drawing necessary inferences thereon


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BASIC DATA FORMATS

The following Basic Data Formats have been devised for the purpose of selection of sample

MPLADS works in each district:

1. Basic Data on all completed MPLADS Works costing Rs.5 lakh and above

from the year 2000 onwards [FORMAT-1]

2. Basic Data on all MPLADS Works since inception i.e. 1993-94

[FORMAT-1 (A)]

3. Basic Data on all completed MPLADS Works costing Rs.1 lakh and above

from the year 2000 onwards [FORMAT-1 (B)]

4. Year-wise Distribution of Completed MPLADS Works costing Rs.5 lakh and above

[FORMAT-2]

5. Completed MPLADS Works [costing Rs.5 lakh and above] involving Societies /

Trusts and Works in the areas inhabited by SCs/STs [FORMAT-3]

6. MP-wise and Area-wise Completed MPLADS Works costing Rs.5 lakh and above

[FORMAT-4]

7. Names of Implementing Agencies in the District, Works on which complaints

received and Works having gestation period of more than 2 years [costing Rs.5

lakh and above] - FORMAT-5.

8. Details of Sample completed MPLADS Works costing Rs.5 lakh or more [55+

works] - FORMAT-6.

PRIMARY DATA SCHEDULES

It is important that the evaluation question is well-matched to the Schemes purpose and

strategies. The Primary Data Schedules designed are intended to elicit information about the

implementation and monitoring aspects of the MPLAD Scheme through direct interviews with

the aid of the following structured questionnaires for various key stakeholders:


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SCHEDULE TITLE PURPOSE MODE

Schedule-1 DistrictAuthority (DA)Schedule

To elicit overall information on the roleof District Authority in implementation,review & monitoring of MPLADSWorks

By way of interaction/interviews with DA &concerned officials

Schedule-2 Schedule for

ImplementingAgencies (IA)

To elicit overall information on the role

of Implementing Agencies inimplementation, review & monitoring ofMPLADS Works

By way of interaction/

interviews with IAsconcerned

Schedule-3 PhysicalVerificationSchedulecomprising ofOn-site and Off-site (Desk)VerificationSchedule

On-site: To physically verify eachwork included in the sample and reporton the nature and quality of works /structures at the site, its durability andutility to the user communityOff-site: To assess the extent to

which the guidelines / norms laid downby the Govt. of India, MOSPI havebeen adhered to by the DA/IA in

respect of each work included in thesample

This may be done withreference to theapproved workestimates /specifications throughinteractions with theDA, IA, user agency,user community andothers concerned.

Schedule-5 Schedule forTrusts /Societiesincluded inSample

To assess the extent to which theguidelines / norms laid down by theGovt. of India, MOSPI have beenadhered to by the Society / Trustwhose works are included in thesample

By way of interaction/interviews with allconcerned officials ofTrusts / Societiesincluded in the sample

Schedule-6 Schedule forNaturalCalamity

AffectedDistricts

To elicit information on worksundertaken under MPLADS in areasaffected by various natural calamities

By way of interaction /interviews with NodalDepartment, DA &concerned officials

Schedule-7 State NodalDepartmentSchedule

To elicit overall information on the roleof Nodal Department at the State levelin implementation, review & monitoringof MPLADS Works

By way of interaction/interviews with NodalDepartment &concerned officials

REFERENCE PERIOD

The reference period for the present monitoring study is 2000-01 to 2011-12.

SOURCES OF INFORMATION

MoS&PI, GoI Discussions, Annual Reports, Website. State Nodal Department District Authority Implementing Agencies User Agencies User Community Members Published literature

CONSTRAINTS & LIMITATIONS

The study team during the data gathering stage encountered some problems in the form ofnon-availability and / or non-cooperation of some of the respondents which limited the scope


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and coverage of this study. In some instances, respondents opted not to respond many of

the questions in the questionnaire leading to incomplete descriptions of the issue posed. The

data relating to the implementation of the programme were not presented in an organized

manner and the study team had to scan through various records of the DA, IA and UAs for

drawing inferences.

The present monitoring entailed a huge exercise in compilation of all the essential details

on all MPLADS works for a period spanning over about two decades since the inception of

the Scheme in 1993-94.

The obtaining of details of the works sanctioned and completed during the period 2000-01

to 2011-12, was the most important basic task for the study team as the information was a

pre-requisite for sample selection.

The data base and record maintenance was poor in the district. It was being maintained

manually in the past as per their practices. The computerization of records had been

initiated in the district only in the recent past. The district had, thus, to compile the data

manually, as per our requirements. It, therefore, took much time for the DA in supplying

information. On cross checking the information supplied by them from their records, the

team came across several instances where the list of MPLADS works provided by the

district authorities were incomplete.

Obtaining of the sanctioned work estimates from the District Authorities / Implementing

Agencies had been a big challenge. Since the field verification of the work has to be donewith reference to the sanctioned work estimates, to record deviations, if any, it was quite

difficult for the team to move forward fast in the absence of such information with them. In

many cases, the Implementing Agencies expressed difficulties in tracing past files and

sought more time. Accordingly, the field team had to undertake field verification in the

absence of sanctioned work estimates, in respect of many works. In such a situation, the

team undertook physical verification of the asset and recorded the features of the work,

dimensions etc. as seen in the work site for corroboration with the actual work estimate

papers/documents as & when received from the DA/IA.


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ORGANIZING OF THE REPORT

The report has been structured into an Executive Summary summing up the outline of the

programmes inputs, activities, processes, outputs etc. and the following five Chapters

dwelling on different aspects of the implementation of the Scheme, keeping in view the TOR

of the study.

CHAPTER TITLE BROAD CONTENTS

Chapter-I Introduction

The policy context of the scheme from inception tilldate, its importance, significance, potential andachievements both physical and financial sinceinception till 2011-12

ChapterIIMethodology and Approachof the Study

The background of the study, criteria for selection ofsample, sample profiles and various tools applied forconducting the study such as basic & secondary

data formats, sources used to capture the requisitedata/information

Chapter-III

An overview of theImplementation of MPLADScheme in the District[i] MPLAD works sanctioned& completed since inception[ii] Status of MPLAD workscompleted since 2000-01 to2011-12

Progress made by the District in the MPLADS workssanctioned and implemented since the inception ofthe scheme in 1993- 94. Year-wise, Cost-wise, IA -wise, works executed in Rural/Urban areas andareas inhabited by SC/ST communities, status ofworks recommended by MPs

Chapter-IV

Analysis & Results ofPhysical Verification of

Assets created underMPLAD Scheme[i] Sample MPLAD Worksincluded in the Study[ii] Extent of Adherence toMPLAD Scheme Guidelines[iii] Social & EconomicImpact of the Assetscreated

In-depth analysis of the outcome data on sample

collected to provide results of the evaluationinterventions which could well be generalized ormade applicable to the universe of the study with agreater degree of probability.Role of concerned Agencies in the implementation ofthe scheme as per its guidelines as also the benefitsof the assets accrued to the local community and theimpact of assets in the area in general

Chapter-VIssues, Suggestions andRecommendations

Findings and conclusions emerging from thediscussions in report and recommendations aboutthe effectiveness of the programme, future

opportunities, areas of improvement, or policychanges.


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CHAPTER-III

AN OVERVIEW OF IMPLEMENTATION OFMPLAD SCHEME IN THE DISTRICT

PROGRESS OF MPLAD SCHEME IN THE DISTRICT

The MPLAD scheme empowers Members of Parliament to undertake work of developmental

nature according to the felt needs and aspiration of the people of their constituents. MP may

also choose some projects of national priorities such as Drinking water, Public health,

Sanitation and Roads under the scheme. This chapter reviews the response of the District in

the creation of durable community assets under the programme and the procedures andguidelines adopted, based on both the secondary and primary information collected from the

different sources. The information will lead to an understanding of the issues and challenges

which have come to the fore in the District in the implementation of the scheme.

STATUS OF MPLAD WORKS COMPLETED SINCE 2000-01 TO 2011-12

The details of the works completed during the period 2000-01 to 2011-12 : [i] MP-wise

classification of works [ii] Agency-wise classification and [v] Classification of works

sanctioned to Societies / Trusts, works in rural areas & those in the areas inhabited bySC/ST communities are contained in Table 3.1 to Table 3.4.

(i) MP-wise classification of completed MPLADS Works

The information relating to MP-wise and Sector-wise completed MPLADS Works costing Rs.

5 lakh and above from the year 2000-01 to 2011-12 is presented in Table 3.1.

Table 3.1

MP-wise and Sector-wise completed MPLADS Works costing

Rs. 1 lakh and above from the year 2000-01 to 2011-12

[Amt. Rs. lakh]

S.No.

Sector ofWorks

Lok Sabha MPs

No. % Amount %

1 DrinkingWater facility

21 10.00 48.68 10.44

2 Education 45 21.43 107.44 23.053 Electricity

Facility5 2.38 9.64 2.07

4 Health &

FamilyWelfare

2 0.95 12.31 2.64


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5 IrrigationFacilities

14 6.67 29.40 6.31

6 Non-ConventionalEnergySources

0 0.00 0.00 0.00

7 Other PublicFacilities

23 10.95 61.79 13.26

8 Roads,Pathways andBridges

97 46.19 191.33 41.05

9 Sanitation &Public Health

2 0.95 4.00 0.86

10 Sports 1 0.48 1.50 0.3211 Animal Care 0 0.00 0.00 0.00

Total 210 100.00 466.08 100.00

As per the data provided by District Authority all schemes recommended by LS and RS MPs

were sanctioned and completed in the same year.Out of the total schemes sanctioned and completed 210 schemes at 100% wererecommended by LS MPs .

Out of total 210 schemes recommended by LS MPs that were sanctioned and completed,major share was contributed by 97 schemes (46.19%) for Roads and Bridges followed by 2schemes (0.95%) for Other Family Care, 21 schemes (10%) each for Drinking water andSports, 45 schemes at (21.43%) each for Education, Health and Family care and Irrigation, 2schemes (0.95%) for Sanitation and Public Health.

As per the data provided by District Authority all schemes recommended by LS.

(ii) Agency-wise classification of the completed works

The data submitted by DA for the schemes of Rs. 5 lakh and above the names ofimplementing Agencies (IA) were not indicated against these schemes. As such agency wiseclassification of works sanctioned and completed by them could not be generated for theschemes sanctioned and completed from the year 2000-01 to 2011-12. However, 61schemes were selected for onsite verification during course of field study. Agency wiseclassification is being furnished in the chapter 4 of this report. Major share was contributedby Government Agencies followed by PRIs as IA under MPLAD works. The reason forselection of these agencies was mainly due to their experience and expertise in these typesof works and also infrastructure available with these agencies. Only two works were given totrusts as IA. This was mainly due to non availability of Registered Societies/Trusts satisfyingthe prescribed eligibility criteria or having necessary competence to execute works.

The information relating to MPLADS Implementing Agencies in the District and Works

sanctioned & completed by them from 2000-01 to 2011-12 is presented in Table 3.2.


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Table 3.2MPLADS Implementing Agencies in the District and

Works sanctioned & completed by them from 2000-01 to 2011-12

[Amt. Rs. lakh]

S.

No.

Particulars Works

No. % Amount %

1 Govt. Agencies/Departments 186 88.57

404.22 86.73

2 PRIs/LMBs 0 0.00

0 0.00

3 Societies/Trusts/NGOs 24 11.43

61.87 13.27

Total 210 100.00

466.09 100.00

Agency-wise position As could be seen from the above details that major share of 186schemes at 86.73% of the total schemes were implemented through Government Agencies.PWD, District Planning Committee, Local Irrigation Department and Rural Water Supply aremajor Government Implementing agencies. These agencies are having expertise andexperience for implementing such schemes. They are also having necessary infrastructurefor implementation of these schemes. DA finds it more convenient to exercise direct controland supervision over these agencies and ensure proper procedures are followed by theseagencies while implementing the schemes. PRI Implemented 0 schemes at 0% of the totalschemes sanctioned. Panchayat samities and Zilla Parishad are agencies under PRI. Itincludes some of schemes implemented by Municipal Corporation, councils. Since these arealso indirectly under the overall supervision of DA, theses agencies are given priorities asimplementing Agencies under MPLAD. 24 at 61.87% schemes were implemented by NGOs.

However, most of NGOs implemented schemes through PWD which is Government agency.

(iii) Classification of works sanctioned to Societies / Trusts, works in rural areas

and works in the areas inhabited by SC/ST communities

The information relating to Completed MPLADS Works costing Rs. 5 lakh and above

involving Societies / Trusts, Works in Rural Areas and Works in the areas inhabited by

SC/ST communities from 2000-01 to 2011-12 is presented in Table 3.3.

Table 3.3

Completed MPLADS Works costing Rs. 5 lakh and above involvingSocieties / Trusts, Works in Rural Areas and Works in the areasinhabited by SC/ST communities from 2000-01 to 2011-12

[Amt. Rs. lakh]

S.No.

Sector ofWork

Trusts/Societies Rural Area SC/ST Inhabited Area

No. % Amt. % No. % Amt. % No. % Amt. %

1 DrinkingWater facility 0.00 0.00 0.00 0.00 21 10.00 48.68 10.44 0 0.00 0.00 0.00

2 Education 23 95.83 54.23 87.65 45 21.43 107.44 23.05 0 0.00 0.00 0.00

3 Electricity

Facility 0 0.00 0.00 0.005

2.389.64

2.07 0 0.00 0.00 0.00


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4 Health &FamilyWelfare 1 4.17 7.64 12.35

2

0.95

12.31

2.64 0 0.00 0.00 0.00

5 IrrigationFacilities 0 0.00 0.00 0.00

146.67

29.406.31 0 0.00 0.00 0.00

6 Non-

ConventionalEnergySources 0 0.00 0.00 0.00

0

0.00

0.00

0.00 0 0.00 0.00 0.00


0 0.00 0.00 0.00

23

10.95

61.79

13.26 3 50.00 7.99 61.67

8 Roads,Pathwaysand Bridges 0 0.00 0.00 0.00

97

46.19

191.33

41.05 3 50.00 4.97 38.33

9 Sanitation &PublicHealth 0 0.00 0.00 0.00

2

0.95

4.00

0.86 0 0.00 0.00 0.00

10 Sports 0 0.00 0.00 0.00 1 0.48 1.50 0.32 0 0.00 0.00 0.0011 Animal Care 0 0.00 0.00 0.00 0 0.00 0.00 0.00 0 0.00 0.00 0.00

Total 24 100.00 61.88 100.00 210 100.00 466.08 100.00 6 100.00 12.95 100.00

Works involving Trust/NGOs - As per the data furnished in the above table, 24 schemeswere implemented through trust during the period from the year 2000-01 to 2011-12. Out ofthis major share contributed by 23 schemes at (93.23%) for Education purpose followed by 0schemes at (0%) for Other Public Care, 0 schemes at (0%) for Sports and 1 schemes at(0.0%) for Roads and Bridges purpose of the total schemes.

(iv) MP-wise cost classification and average amount sanctioned of worksimplemented in the district

The law of averages may be helpful in reviewing the MPLAD Scheme as it supports the

belief about the expected outcomes from the policy that in the long run probabilities will

determine performance. The average expenditure recommended by the MPs under different

cost ranges is exhibited in Table 3.4.

Table 3.4MP-wise cost classification and average amount sanctioned of works implemented in

the district[Amt. Rs lakh]

S.No.

Amountclassification

Lok Sabha MP

No. % Amount %

1 Upto Rs. 1lakh

15 25.86 24.11 12.70

2 Rs. 1 lakh toRs. 5 lakh

35 60.34 113.15 59.62

3 Rs. 5 lakh toRs. 25 lakh

8 13.79 52.49 27.66

4 Above Rs. 25lakh

0.00 0

Total 58 100.00 182.86 100.00


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Average expenditure incurred per schemeLS MPs recommended and sanctioned majornumber of works in the category of Rs.1 lakh and above and below Rs. 5 lakh. However, itcould be seen from the above table that LS MPs recommendations of per scheme averagestood at Rs. 6.96 lakh as against LS MPs recommendations of per scheme average stood atRs. 2.22 lakh. RS MPs recommendations for larger amount per scheme as compare to LSMPs. But the total numbers of schemes recommended by LS MPs are much more thanrecommended RS MPs. LS MPs are more concern about the coverage of their respectiveconstituencies and also coverage of real needs for asset creation for public utility. LS MPstake care to have coverage of maximum population of the constituency. As against this RSMPs are concern about such works recommended in the interest of entire society in general.


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CHAPTER-IV

ANALYSIS & RESULTS OF PHYSICAL VERIFICATIONOF SAMPLED MPLAD SCHEME WORKS

SAMPLE MPLAD SCHEME WORKS INCLUDED IN STUDY

When conducting an evaluation, it is critical to select a sample of items or units of analysis

that are representative of the population intended to be studied. A sample of total 58 works

completed during the period 2000-01 to 2011-12 has been selected for physical verification

of the Assets created under the Scheme as per the sample frame outlined in Chapter II.

12 works costing Rs.5 lakh and above implemented in the District, have been included in

the sample and the 58remaining 12 works selected on stratified random sample basis to

provide an accurate reflection of the variations and diversity represented within a population,

by going down the list. The outcome data on sample collected in the study provide results of

the evaluation interventions which could well be generalized or made applicable to the

universe of the study with a greater degree of probability.

DISTRIBUTION PATTERN OF SAMPLE WORKS

The works have been selected in such a way that they will give a fair idea of the

implementation of the scheme from the angle of all the parameters of scheme guidelines.

The Year-wise , MP-wise, IA-wise, Location wise , Community Inhabitation-wise, Broad

Sector wise and Cost -wise classification of sample works are exhibited in Table 4.1 to

Table 4.3

YEAR-WISE AND SECTOR-WISE DISTRIBUTION OF SAMPLE WORKS

The information relating to Year-wise and Sector-Wise Distribution of Sampled MPLADS

Works (Physical Units) is presented in Table 4.1A.


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Table 4.1AYear-wise and Sector-Wise Distribution of Sampled MPLADS Works (Physical Units)

S.No

Sector ofWork

No. of Works completed during the year

2000-01

2001-02

2002-03

2003-04

2004-05

2005-06

2006-07

2007-08

2008-09

2009-10

2010-11

2011-12

Total

1 DrinkingWaterFacility

2 Education

3 ElectricityFacility

4 Health &FamilyWelfare




8 Roads,Pathwaysand Bridges

9 Sanitation &PublicHealth

10 Sports

11 Animal Care

Total

% [To totalcompletedworks]


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The information relating to Year-wise and Sector-Wise Distribution of Sampled MPLADS

Works (Financial Outlay) is presented in Table 4.1B.

Table 4.1BYear-wise and Sector-Wise Distribution of Sampled MPLADS Works (Financial Outlay)

[Amt. Rs lakh]S.No

Sector ofWork

No. of Works completed during the year

2000-01

2001-02

2002-03

2003-04

2004-05

2005-06

2006-07

2007-08

2008-09

2009-10

2010-11

2011-12

Total

1 DrinkingWaterFacility

2 Education

3 ElectricityFacility

4 Health &FamilyWelfare




8 Roads,Pathwaysand Bridges

9 Sanitation &PublicHealth

10 Sports

11 Animal Care

Total

% [To totalcompletedworks]


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MP-WISE, AREA-WISE AND COST-WISE DISTRIBUTION OF SAMPLE WORKS

The information relating to MP-wise, Cost-wise, Rural Area-wise and SC/ST Area-wise

distribution of sampled worksis presented in Table 4.2.

Table 4.2MP-wise, Rural Area-wise, SC/ST Area-wise and Cost-wise distribution of sampled

works[Amt. Rs. lakh]

S. No. Particulars Works involved

Physical Financial

No. % Amount %

1 Works recommended by

[i] Lok Sabha MP 58 100.00 189.76 100

Total 58 100.00 189.76 1002 Works recommended in 0.00 0

[i] Rural area 45 77.59 144.27 76.0

[ii] SC/ST area 55 94.83 176.47 93.00

3 Cost-wise classification ofworks

[i] Below Rs. 50,000 0.00 0

[ii] Between Rs. 50,000- Rs.2 lakhs

15 25.86 24.11 12.70

[iii] Between Rs. 2 lakhs - Rs.

5 lakhs

35 60.34 113.15 59.62

[iv] Between Rs. 5 lakhs -Rs. 25 lakhs

8 13.79 52.49 27.66

[v] Above Rs. 25 lakhs 0.00 0

Total 58 100 189.76 100

Of the 58 samples selected from the completed works, during the period 2000-01 to 2012-

13, 28 works [47.46%] with a financial outlay of Rs. 120.60 lakh [40.97%] were

recommended by the LokSabha MPs and 58 works [100%] costing Rs. 189.76 lakh [100%]

.

There has been any work recommended by any Nominated MP in the District. MPs are

required to earmark 15% and 7.5% of the amount of their annual recommendations of works

to the District Authorities, for execution in the SC/ST habitation respectively. All the works

are executed in the ST area, as the district is predominantly inhabited by ST population. In

NPorbandar District 77.59% of the works are executed in the rural areas costing Rs. 144.27

lakh [76%] and 94% of the works are executed in the rural areas costing Rs. 176.47 lakh

[93.00%]

Majority of 35 work [60.34%] involving an amount of Rs. 113.15 lakh [59.62%] in the costcategory of Rs. 5 lakh to Rs.25 lakh, followed by 8 works [13.79%) with a financial outlayof Rs.27.66 lakh [27.66%] were in the cost range of Rs.2 lakh to Rs.5 lakhs.


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EXECUTING AGENCY-WISE DISTRIBUTION OF SAMPLE WORKS

The information relating to Sample Works allocated amongst different Implementing

Agencies for executionis presented in Table 4.3.

Table 4.3Sample Works allocated amongst different Implementing Agencies for execution

[Amt. Rs. lakh]

S.No.

Particulars Works involved

Physical Financial

No. % Amount %

1 Govt. Agencies/Departments 32 51.7 100.9 55.72

2 PRIs/LMBs 16 27.60 43.20 23.63

3 Societies/Trusts/NGOs 12 20.70 38.77 20.65

Total 58 100 182.82 100

The DA can identify suitable Agencies which include, Societies/Trusts/NGOs, PRIs/LMBs

and Government Departments/Agencies as Implementing Agencies [IAs] to implement works

under the programme. Mainly Govt.Agencies been considered as IAs and a large majority of

works -32 [51.7%] with the financial outlay of almost in the same proportion [55.72%] have

been got implemented through them.

The information relating to Agency-wise, SC/ST area-wise and cost-wise classification of

works recommended by LS and RS MPs is presented in Table 4.4.

Table 4.4Agency-wise, SC/ST area-wise and cost-wise classification

of works recommended by LS and RS MPs

[Amt. Rs. lakh]

S.No.

Particulars Lok Sabha MPs

1 Work recommended to No. ofWorks

% Amount %

[i] Govt.Agencies/Departments 32 51.7 100.9 55.72

[ii] PRIs/LMBs 16 27.60 43.20 23.63

[iii]Societies/Trusts/NGOs 12 20.70 38.77 20.65

2 Work recommended in

[i] Rural areas 45 77.59 144.27 76.0

[ii] SC/ST area 55 94.83 176.47 93.00

3 Cost wiseClassification

Upto 1 lakh 15 25.86 24.11 12.70

Between 1 lakh and 5lakh

35 60.34 113.15 59.62

Between 5 lakh and 25lakh

8 13.79 52.49 27.66

Above 25 lakh 0 0 0 0


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Of the total 58 sample works, 58 [100%] projects have been sponsored by the LS MPs .Of

the sample works in respect of LS MPs, Totally of 58 works [100%] involving an amount of

Rs. 189.76 lakh [100%] have been got executed through the Government

Departments/Agencies, while 32 works [55.72%] with a financial outlay of Rs. 100.9 lakh

[8.09%] through the PRIs/LMBs and only 16 [23.63%] costing Rs. 1 lakh through

Societies/Trusts. Like-wise, in case of LS MPs, 11 [73.33%] were executed by Government

departments/agencies, 32 [51.7%] each by PRIs and only 16 [27.60%] Societies/Trusts

costing Rs. 20.72 lakh [20.42%],

A total of 45 sample works [76%] involving an amount of Rs. 144.27 lakh [76%] has been

implemented in rural areas.

Majority of the works recommended by both Lok Sabha fall under the category of Rs. 1 lakh

and Rs. 5 lakh. There was only 1 work in the range of Rs, 25 lakh and above executed in the

district which was recommended by LS MPs.

EXTENT OF ADHERENCE TO MPLAD SCHEME GUIDELINESBY DISTRICT AUTHORITY AND IMPLEMENTING AGENCIES

The Scheme Guidelines contain a detailed and elaborate procedure to ensure that theoperations are efficient and effective to maximize the MPLAD Scheme potential. Adherenceto the guidelines by all the stakeholders will make the scheme result-oriented, time boundand cost effective.

The District Collector has been designated as the Implementing District Authority and he iscoordinating and supervising of implementation of works through District Planning Officerwho is in charge of District by District Planning Office (DPO).

The procedure followed by the DA in regard to various aspects of the implementation of theScheme from the receipt of the recommendations from the MPs to the post completion ofworks stages, is summarized in Table 4.5


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Table 4.5Procedure followed by District Authority in Implementation of MPLAD Scheme

S. No. Norms / Parameters Status

Recommendation of MPs

i Recommendations being received on MPs letter heads Yes

ii Suggestive shelf/basket of works maintained by DA Yes

iii MPs recommending works from suggestive shelf / basket of works Yes

iv MPs also furnish cost estimates at the time of recommendation of work Yes

v No. of works relating to education and cultural development recommended by MPsoutside their parliamentary constituency

No

vi MPLADS Plaque installed at Govt. hospitals, Municipal/Panchayat Officesregarding sanction of ambulance

No

vii Assistance out of MPLADS extended for purchase of Books forschools/colleges/Institutes

No

viii Assistance out of MPLADS extended to differently abled persons No

Assistance out of MPLADS extended for purchase of Ambulances/Hearse Yes

Sanction of works by DA

ix Maximum time limit of one year for completion of work being stipulated in thesanction letter

Yes

x Sanction letter contains a penal clause for delay in execution of work No

xi Penalty clause invoked against the agency involved No

xii Copies of sanction letters being sent to MP

xiii No. of works where site recommended by MP changed by DA No

xiv No. of works where work recommended by MP rejected No

xv Problems experienced in obtaining clearance for any work from other agencies Yes

Sanction of works to Societies / Trusts

xvi Affidavit being taken from Societies / Trusts regarding non-interest of MPs familybefore sanction of work

Yes

xvii Undertaking being taken from User Agency for maintenance of the asset beforesanction of work

Yes

Maintenance of Records of Works/Assets by DAxviii DA maintaining asset register for all works created in the district under MPLADS Yes

xix DA maintaining different MP-wise books of accounts under MPLADS Yes

xx Separate data regarding execution of works in SC&ST areas being maintained byDA

Yes

xxi Details of works / assets created under MPLADS being uploaded on the MPLADSwebsite

No

xxii Period up to which the website has been uploaded Some ofProject

xiii All completed & and ongoing works displayed at the DA office No

Review Meetings taken by DA with Implementing Agenciesxxiv Periodicity of review meeting with IA on MPLADS [Monthly/Bimonthly/

Quarterly/As required]

As

Requiredxxv MPs presence in the review meetings [Regularly/Sometimes/Never] Never

Setting up of Facilitation Centre in the district

xxvi MPLADS Facilitation Centre set up in the district AsRequired

xxvii Provision of facilities such as computer, internet, office space etc. in the FacilitationCentre

Never

General aspects

xxviii No. of training programmes conducted (last 5 yrs) 0

xxix No. of cases in which MPLADS funds used towards State Government share inany Centrally sponsored schemes [2000 to 2012]

xxx No. of works in which public/community contributions also pooled with MPLADSfunds [2000 to 2012]

4

xxxi CAG has undertaken test audit on MPLADS in the district Yesxxxii Complaints received from public on the use of MPLADS asset/funds 0


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RECOMMENDATION OF MP AND ADHERENCE TO SANCTIONING CRITERIA

Under the MPLAD Scheme, an MP has to recommend work on his/her letter head duly

signed by him/her to the DA. All the sampled works in the district are reported to have beenrecommended by MPs on their letter heads duly signed by them. In a few cases, MPs had

also furnished cost estimates along with the recommendation.

Among the sampled works, in respect of only works, the recommendation of the MP was

received within 90 days from the commencement of the Financial Year which accounted for -

51.78% of the sampled works. In a large majority of cases, the MPs were found to be

recommending the work to DA all through the year. Incidentally, the earlier stipulation of

sending recommendations preferably within 90 days by the MPs from the date of

commencement of the financial year has since been removed under the new scheme

guidelines which have come into force effective from August 2012.

On the receipt of recommendation from the MP, the DA examines the eligibility and technical

feasibility of the work, prepares work estimates, and identifies IA and then accords financial

sanction and administrative approval. The standard sanction letter issued by the DA

contains a clause stipulating the time limit for completion of work by the IA which is normally

not more than one year. In case it is more than one year, specific reasons are required to be

incorporated in the sanction letter/order. Generally, a time limit of 90 days to 180 days is

given. But this limit varies according to the nature of work and amount sanctioned. Copies of

sanctioned letters are being invariably sent to the MPs by DA.

EXECUTION OF WORK

DA is following the established work scrutiny, technical work estimation norms and otheradministrative procedure as laid down by the State Govt. in the execution of work.

The standard sanction letters issued by the DA contain a clause stipulating the time limit forcompletion of work by the IA which is normally not more than one year. After receivingadministrative approval from DA, work orders were issued by IAs. The work order does notcontain a penal clause for delay in execution of work. However, before execution of work

contract was executed between IA and Executing agency which contains a penal clause fordelay in execution of work.

Assets created under the scheme are normally to be maintained by the User Agencies.

District Authority has to identify the User Agencies, obtain necessary clearance from the

Competent Authority where necessary, before sanction of work and follow the process of

the awarding the contract as per the procedure prescribed by the concerned State

Government. The procedure followed by the DA in this regard in the District is shown in

Table 4.6.


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Table 4.6Procedure followed in execution of work

S.No.

Particulars No. ofworks

%

1 Total works where User Agency [UA] was identified

[a] UA identified before sanction of work 58 100

[b] UA identified after sanction of work2 Tendering Process adopted

[a] Works where process of tendering has been adoptedfor execution of work

22 25

[b] Works where execution done directly by theDepartment/Agency

36 75

3 All required clearances obtained 58 100

In respect of 36 works, tendering process was not adopted by Implementing Agencies. Outof theses 36 cases, in respect of 3 works, work order was issued directly to unemployedgraduate engineers. It was informed that the procedure followed is as per the norms of StateGovernment Policy. All 9 works, without calling open quotations, work orders were issued

directly based on single quotation for each work from the same firm. One single firm wasallotted all 5 works without ensuring the competitiveness of the quotations received bycalling open quotations. The work orders were issued by passing separate resolution foreach work by Standing Committee indicating reason that the only firm having expertise in thefield was allotted these works. It was informed that the procedure followed was as per thenorm of TDO Porbandar.

DA is following the established work scrutiny, technical work estimation norms and otheradministrative procedure as laid down by the State Govt. in the execution of work.

The standard sanction letters issued by the DA contain a clause stipulating the time limit forcompletion of work by the IA which is normally not more than one year. The sanction letter

contains / does not contain a penal clause for delay in execution of work.

SAMPLED WORKS J OINTLY FUNDED/CONVERGED WITH OTHER GOVT.SCHEMES/PROGRAMMES

Convergence brings better synergy between different government programmes and

schemes in terms of their planning, process sand implementation in order to use resources

efficiently. MPLAD scheme can be converged with GoI/State Govt. schemes provided such

works are eligible under MPLADS and funds of the other schemes are used first. The

position of the sampled works converged with other Govt. Schemes/Programmes is collated

in Table 4.7.

Table 4.7Sampled works converged with other Govt. Schemes/Programmes

[Amount Rs lakh]

S.No.

WorkNo.

Name of samplework converged

Name ofScheme/Programmewith whichconverged

Name of the IA ofthe scheme withwhich MPLADSmerged

Amount ofMPLADS workpooled with theconverged scheme


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Total

% Yes/No tototal

- -

OPENING OF BANK ACCOUNTSThe DA has opened separate MP-wise Savings Bank Accounts in Nationalized Banks as per

scheme Guidelines. All the MPLADS funds received from the GoI are deposited in the bank

accounts and the interest accrued thereon is also being utilized for the recommended works.

DA has been releasing advance to the IAs on time and as per Scheme Guidelines.

RELEASE OF ADVANCE TO IA IN RESPECT OF THE SAMPLED WORKS

Timely and adequate release of funds to the IAs helps in the smooth implementation of a

project. Under the Guidelines, DA could release advance up to 50% of the estimated cost

of sanctioned work to the IA and balance on the basis of progress of the work. Effective from

15 June, 2011, DA shall release 75% of the estimated cost in advance as Ist installment if IA

is a Govt. agency and 60% if the IA is the private agency. In case of works up to 2 lakh, the

entire amount may be released in first instalment to the Govt agency. The second instalment

is to be released when IAs utilize 60% of the first advance. Information collected in this

regard in respect of the sample works is collated in Table 4.8.

Table 4.8Release of advance to the Implementing Agency in respect of the sampled works

[Amt. Rs. lakh]S.No.

Particulars Advance against the sanctioned cost released asthe first installment to

Govt. Agencies PRI/ LocalMunicipalBodies

Society/Trust

Total No. of sample works:

No. Amount No. Amount No. Amount

1 Works in respect ofwhich advancereleased up to 50% ofthe sanctioned cost

2 Works in respect of

which advancereleased up to 75% /60% of the sanctionedcost @

3 Works in respect ofwhich 100%advance released

[a] Works upto Rs. 2lakh

[b] Works above Rs. 2lakh

Total

@ Effective from 15.6.2011


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The IAs have generally been receiving funds from the DA on time.

REFUND OF UNSPENT BALANCE BY IA TO DA

All expenditures of MPLADS funds must be prudent and economical and all the concerned

agencies are required to make efforts in this regard. The savings for each work including the

interest accrued on funds shall be refunded by the IA to the District Authority within 30 days

of the completion of the work. IA has also to close Bank account immediately after transfer of

savings to DA.

Table 4.9 contains the status of the refund of the unspent balance by the IA to the DA.

Table 4.9Status of refund of unspent balance by IA to DA

[Amt. Rs. lakh]

S.No.

WorkNo.

Name of works inwhich unspent

money remained

Amount ofunspentbalance

Amountrefunded

by IA to DA

Avg. time toreturn unspent

money

Total

% # -

No unspent balance has been reported by the IA to the DA in the sampled works included inthe study. Hence, there is no case of money being refunded.

COST OVERRUN SAMPLE CASES

Every effort is required to be made on the part of Implementing Agencies to complete works

on time and within the sanctioned budget. The position of the cost overrun of the sample

works for various reasons is indicated in Table 4.10.

Table 4.10Cost overrun sample Cases

[Amt Rs. lakh]S.

No.WorkNo.

Name ofSampleWork

Date ofcommencement

of work

Date ofcompletion

Originalsanctioned

cost

Actualexpenditure

incurred

Reasonsfor costoverrun

Total - -

No cost overrun has been reported.

MPLADS PERFORMANCE ON TIMELINES


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The Scheme Guidelines prescribe a specific time frame for receipt of proposal, its disposal

and filing of various certificates/reports by the concerned authorities for effective

implementation of the programme. The performance of the scheme on observing time

schedule is shown in Table 4.11.

Table 4.11MPLADS performance on timelines

S.No.

Particulars No. of works

1 Works for which recommendations of the MP receivedwithin 90 days from the commencement of the FinancialYear

2 Works sanctioned within the stipulated period of 45/75days from the date of MPs recommendation

Avg. Max. Min.

3 Number of days for sanction after recommendation

4 Number of days for financial sanction afteradministrative sanction

5 Number of days for release of first payment afterFinancial sanction

6 Number of days to work completion after financialsanction

7 Number of days to WCR after work completion

8 Number of days to WCR after recommendation

9 Number of days to UC after work completion

No Data Available.

DELAY IN SANCTION OF WORKS

The DA is required to sanction works within a maximum period of 45 days [75 days from 15

June, 2011] from the date of receipt of recommendations from the MP, after complying with all

the pre-sanction formalities. The details of the cases sanctioned beyond the above stipulated

period are indicated in Table 4.12.

Table 4.12Details of cases sanctioned beyond the stipulated period of 45/75 days @

S.No.

WorkNo.

Name of theSample Work

Date of receipt ofrecommendations

from the MP

Date ofsanction

by the DA

Time gap [col. 5-4] in days

Reasons for delayin sanction

[1] [2] [3] [4] [5] [6] [7]

Total

Avg. time gap insanction

- - -

[@75 days w.e.f. June, 2011]


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ERECTING OF MPLADS PLAQUES

Under the guidelines a Plaque [Stone/Metal] carrying the inscription MPLADS Works,

indicating the cost involved , commencement, completion and inauguration dates and the

name of the MP sponsoring the project, should be permanently erected at all the work sitesfor greater public awareness and transparency. The status of the Plaques observed to be

erected on the sites of the sample works during physical verification of the Assets is shown

in Table 4.13.

Table 4.13Erecting of Plaques at the sample work site

S.No.

Name of the Asset Works involved

No. %

1 Plaque installed 7 12.06

2 Plaque not found butinstalled earlier

3 5.17

3 Plaque never installed 48 82.75

Though the scheme guidelines very specifically states installation of plaques on all theassets created under it, yet during physical verification, Plaques were found only on 7works(12.06%). Further, in respect of some old works, the condition of plaque was not found good.No standard pattern indicating all details of cost involved, commencement, completion andinauguration dates and the name of the MP sponsoring the project has been devised by IAsfor erecting such plaques. At about half of the sample work sites [82.75%] , the requisiteplaques did not appear to have ever been installed in violation of the scheme guidelines.

The IAs argued in such cases that the plaques were originally installed but removed at thetime of elections. However, no photographs of plaques said to have been installed earlier,were found on the record.

COMPLAINTS AND DELAYED COMPLETION WORKS

The DA is responsible for providing information to the public in the manner required under

the Righ

111 gj porbandar fdr ne

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