111 GJ Porbandar FDR Ne

Monitoring of MPLADS Works
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CONTENTS
Page No. Abbreviations Executive Summary Chapter I Chapter II Chapter III Chapter IV Introduction Approach & Methodology of the Study An Overview of the Implementation of MPLAD Scheme in the District Analysis & Results of Physical Verification of Assets created under MPLAD Scheme (i) (ii) (iii) Chapter V Annexure Sample MPLAD Works included in the Study Extent of Adherence to MPLAD Scheme Guidelines Social & Economic Impact of the Assets created 1 2 4 9 16 24 29 33 47 44
Issues, Suggestions and Recommendations Summary of all Sampled Works with Photographs
AFC India Ltd. (formerly, Agricultural Finance Corporation Ltd.)
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Abbreviations
AFC CEO DA EE GOI IA LS RS MoU MP MPLADS NGO PCs PRI PWD SC ST UA UC WCR ZP
Agricultural Finance Corporation Ltd. Chief Executive Officer District Authority Executive Engineer Government of India Implementing Agency Lok Sabha Rajya Sabha Memorandum of Understanding Member of Parliament Member of Parliament Local Area Development Scheme Non-Government Organization Personal Computers Panchayati Raj Institutions Public Works Department Scheduled Caste Scheduled Tribe User Agency Utilization Certificate Work Completion Report 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 GoI guidelines on the implementation of the scheme and [iv] making an assessment on the utility 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 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%]
6. Majority of 35 work [60.34%] involving an amount of Rs. 113.15 lakh [59.62%] in the cost category of Rs. 5 lakh to Rs.25 lakh, followed by 8 works [13.79%) with a financial outlay 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 unemployed graduate engineers. It was informed that the procedure followed is as per the norms of State Government 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 was allotted all 5 works without ensuring the competitiveness of the quotations received by calling open quotations. The work orders were issued by passing separate resolution for each work by Standing Committee indicating reason that the only firm having expertise in the field was allotted these works. It was informed that the procedure followed was as per the norm 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%] were located 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 the investments made. The overall position of maintenance of the assets created under the
AFC India Ltd. (formerly, Agricultural Finance Corporation Ltd.) Page 6
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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 and not 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 as per 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 the impact 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 multilevel 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 specific problems 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. Likewise the scheme 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 of 14.27%, 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. of India 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
Monitoring of MPLADS Works In addition to above, a few works sanctioned to Trusts/Societies A few works sanctioned in areas inhabited by SCs/STs.
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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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Monitoring of MPLADS Works BASIC DATA FORMATS
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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 [FORMAT-1 (A)] all MPLADS Works since inception i.e. 1993-94
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 Schedule-1 TITLE District Authority (DA) Schedule Schedule for Implementing Agencies (IA) PURPOSE To elicit overall information on the role of District Authority in implementation, review & monitoring of MPLADS Works To elicit overall information on the role of Implementing Agencies in implementation, review & monitoring of MPLADS Works On-site: To physically verify each work included in the sample and report on the nature and quality of works / structures at the site, its durability and utility to the user community Off-site: To assess the extent to which the guidelines / norms laid down by the Govt. of India, MOSPI have been adhered to by the DA/IA in respect of each work included in the sample To assess the extent to which the guidelines / norms laid down by the Govt. of India, MOSPI have been adhered to by the Society / Trust whose works are included in the sample To elicit information on works undertaken under MPLADS in areas affected by various natural calamities
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MODE By way of interaction/ interviews with DA & concerned officials By way of interaction/ interviews with IAs concerned
Schedule-2
Schedule-3
Physical Verification Schedule comprising of On-site and Offsite (Desk) Verification Schedule
This may be done with reference to the approved work estimates / specifications through interactions with the DA, IA, user agency, user community and others concerned.
Schedule-5
Schedule for Trusts / Societies included in Sample Schedule for Natural Calamity Affected Districts State Nodal Department Schedule
By way of interaction/ interviews with all concerned officials of Trusts / Societies included in the sample By way of interaction / interviews with Nodal Department, DA & concerned officials By way of interaction/ interviews with Nodal Department & concerned officials
Schedule-6
Schedule-7
To elicit overall information on the role of Nodal Department at the State level in implementation, review & monitoring of MPLADS Works
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 of non-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 done with 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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Monitoring of MPLADS Works ORGANIZING OF THE REPORT
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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 Chapter-I BROAD CONTENTS The policy context of the scheme from inception till date, its importance, significance, potential and Introduction achievements both physical and financial since inception till 2011-12 The background of the study, criteria for selection of sample, sample profiles and various tools applied for Methodology and Approach conducting the study such as basic & secondary of the Study data formats, sources used to capture the requisite data/information An overview of the Implementation of MPLAD Progress made by the District in the MPLADS works Scheme in the District sanctioned and implemented since the inception of [i] MPLAD works sanctioned the scheme in 1993- 94. Year-wise, Cost-wise, IA & completed since inception wise, works executed in Rural/Urban areas and [ii] Status of MPLAD works areas inhabited by SC/ST communities, status of completed since 2000-01 to works recommended by MPs 2011-12 Analysis & Results of Physical Verification of In-depth analysis of the outcome data on sample Assets created under collected to provide results of the evaluation MPLAD Scheme interventions which could well be generalized or [i] Sample MPLAD Works made applicable to the universe of the study with a included in the Study greater degree of probability. [ii] Extent of Adherence to Role of concerned Agencies in the implementation of MPLAD Scheme Guidelines the scheme as per its guidelines as also the benefits [iii] Social & Economic of the assets accrued to the local community and the Impact of the Assets impact of assets in the area in general created Findings and conclusions emerging from the Issues, Suggestions and discussions in report and recommendations about Recommendations the effectiveness of the programme, future opportunities, areas of improvement, or policy changes. TITLE
Chapter II
Chapter-III
Chapter-IV
Chapter-V
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CHAPTER-III AN OVERVIEW OF IMPLEMENTATION OF MPLAD 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 and guidelines 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 by SC/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. 1 2 3 4 Sector of Works No. Drinking Water facility Education Electricity Facility Health & Family Welfare % Lok Sabha MPs Amount %
21 45 5 2
10.00 21.43 2.38 0.95
48.68 107.44 9.64 12.31
10.44 23.05 2.07 2.64
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5 6 Irrigation Facilities NonConventional Energy Sources Other Public Facilities Roads, Pathways and Bridges Sanitation & Public Health Sports Animal Care Total
Porbandar 14 0 6.67 0.00 29.40 0.00 6.31 0.00
7 8
23 97 2
10.95 46.19 0.95
61.79 191.33 4.00 1.50 0.00 466.08
13.26 41.05 0.86 0.32 0.00 100.00
9 10 11
1 0.48 0 0.00 210 100.00
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% were recommended 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 2 schemes (0.95%) for Other Family Care, 21 schemes (10%) each for Drinking water and Sports, 45 schemes at (21.43%) each for Education, Health and Family care and Irrigation, 2 schemes (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 of implementing Agencies (IA) were not indicated against these schemes. As such agency wise classification of works sanctioned and completed by them could not be generated for the schemes sanctioned and completed from the year 2000-01 to 2011-12. However, 61 schemes were selected for onsite verification during course of field study. Agency wise classification is being furnished in the chapter 4 of this report. Major share was contributed by Government Agencies followed by PRIs as IA under MPLAD works. The reason for selection of these agencies was mainly due to their experience and expertise in these types of works and also infrastructure available with these agencies. Only two works were given to trusts as IA. This was mainly due to non availability of Registered Societies/Trusts satisfying the 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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Monitoring of MPLADS Works Table 3.2 MPLADS Implementing Agencies in the District and Works sanctioned & completed by them from 2000-01 to 2011-12
S. No. 1 2 3 Particulars No. Govt. Agencies/Departments PRIs/LMBs Societies/Trusts/NGOs Total % [Amt. Rs. lakh] Works Amount %
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186 0 24 210
88. 57 0.0 0 11. 43 100 .00
404.22 0 61.87 466.09
86.73 0.00 13.27 100.0 0
Agency-wise position As could be seen from the above details that major share of 186 schemes at 86.73% of the total schemes were implemented through Government Agencies. PWD, District Planning Committee, Local Irrigation Department and Rural Water Supply are major Government Implementing agencies. These agencies are having expertise and experience for implementing such schemes. They are also having necessary infrastructure for implementation of these schemes. DA finds it more convenient to exercise direct control and supervision over these agencies and ensure proper procedures are followed by these agencies while implementing the schemes. PRI Implemented 0 schemes at 0% of the total schemes sanctioned. Panchayat samities and Zilla Parishad are agencies under PRI. It includes some of schemes implemented by Municipal Corporation, councils. Since these are also indirectly under the overall supervision of DA, theses agencies are given priorities as implementing 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 involving Societies / Trusts, Works in Rural Areas and Works in the areas inhabited by SC/ST communities from 2000-01 to 2011-12
S. No. 1 2 3 Sector of Work No. Drinking Water facility Education Electricity Facility Trusts/Societies % Amt. % No. Rural Area % Amt. % No. [Amt. Rs. lakh] SC/ST Inhabited Area % Amt. %
0.00 23 0
0.00 95.83 0.00
0.00 54.23 0.00
0.00 87.65 0.00
21 45 5
10.00 21.43 2.38
48.68 107.44 9.64
10.44 23.05 2.07
0 0 0
0.00 0.00 0.00
0.00 0.00 0.00
0.00 0.00 0.00
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4 Health & Family Welfare Irrigation Facilities NonConventional Energy Sources Other Public Facilities Roads, Pathways and Bridges Sanitation & Public Health Sports Animal Care Total
Porbandar 2 12.31 0.95 14 0 6.67 29.40 0.00 0.00 23 61.79 10.95 97 191.33 46.19 2 4.00 0.86 1.50 0.32 0.00 0.00 466.08 100.00 0 0.00 0 0.00 0 0.00 6 100.00 0.00 0.00 0.00 0.00 0.00 0.00 12.95 100.00 41.05 3 50.00 4.97 38.33 13.26 3 50.00 7.99 61.67 0.00 0 0.00 0.00 0.00 2.64 6.31 0 0 0.00 0.00 0.00 0.00 0.00 0.00
1 0
4.17 0.00
7.64 0.00
12.35 0.00
5 6
0 0 0
0.00 0.00 0.00
0.00 0.00 0.00
0.00 0.00 0.00
7 8
10 11
0 0.00 0 0.00 0 0.00 24 100.00
0.00 0.00 0.95 1 0.00 0.00 0.48 0 0.00 0.00 0.00 61.88 100.00 210 100.00
Works involving Trust/NGOs - As per the data furnished in the above table, 24 schemes were implemented through trust during the period from the year 2000-01 to 2011-12. Out of this major share contributed by 23 schemes at (93.23%) for Education purpose followed by 0 schemes 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 works implemented 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 3.4 MP-wise cost classification and average amount sanctioned of works implemented in the district
[Amt. Rs lakh] S. No. 1 2 3 4 Amount classification Upto Rs. 1 lakh Rs. 1 lakh to Rs. 5 lakh Rs. 5 lakh to Rs. 25 lakh Above Rs. 25 lakh Total No. 15 35 8 Lok Sabha MP % 25.86 60.34 13.79 0.00 Amount 24.11 113.15 52.49 % 12.70 59.62 27.66 0
58 100.00
182.86 100.00
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Average expenditure incurred per scheme LS MPs recommended and sanctioned major number of works in the category of Rs.1 lakh and above and below Rs. 5 lakh. However, it could be seen from the above table that LS MPs recommendations of per scheme average stood at Rs. 6.96 lakh as against LS MPs recommendations of per scheme average stood at Rs. 2.22 lakh. RS MPs recommendations for larger amount per scheme as compare to LS MPs. But the total numbers of schemes recommended by LS MPs are much more than recommended RS MPs. LS MPs are more concern about the coverage of their respective constituencies and also coverage of real needs for asset creation for public utility. LS MPs take care to have coverage of maximum population of the constituency. As against this RS MPs are concern about such works recommended in the interest of entire society in general.
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CHAPTER-IV ANALYSIS & RESULTS OF PHYSICAL VERIFICATION OF 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 4.1A Year-wise and Sector-Wise Distribution of Sampled MPLADS Works (Physical Units)
S. No
1
Sector of Work
200001 Drinking Water Facility Education Electricity Facility Health & Family Welfare Irrigation Facilities NonConventiona l Energy Sources Other Public Facilities Roads, Pathways and Bridges Sanitation & Public Health Sports Animal Care Total % [To total completed works] 200102 200203 200304
No. of Works completed during the year

200405 200506 200607 200708 200809 200910 201011 201112 Total
2 3 4
5 6
7 8
10 11
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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 4.1B Year-wise and Sector-Wise Distribution of Sampled MPLADS Works (Financial Outlay)
[Amt. Rs lakh] S. No
1
Sector of Work
200001 Drinking Water Facility Education Electricity Facility Health & Family Welfare Irrigation Facilities NonConventional Energy Sources Other Public Facilities Roads, Pathways and Bridges Sanitation & Public Health Sports Animal Care Total % [To total completed works] 200102 200203 200304
No. of Works completed during the year

200405 200506 200607 200708 200809 200910 201011 201112 Total
2 3 4
5 6
7 8
10 11
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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 works is presented in Table 4.2. Table 4.2 MP-wise, Rural Area-wise, SC/ST Area-wise and Cost-wise distribution of sampled works
[Amt. Rs. lakh] S. No. Particulars Physical No. 1 Works recommended by [i] Lok Sabha MP Total 2 Works recommended in [i] Rural area [ii] SC/ST area 3 Cost-wise classification of works [i] Below Rs. 50,000 [ii] Between Rs. 50,000- Rs. 2 lakhs [iii] Between Rs. 2 lakhs - Rs. 5 lakhs [iv] Between Rs. 5 lakhs Rs. 25 lakhs [v] Above Rs. 25 lakhs Total 58 15 35 8 0.00 25.86 60.34 13.79 0.00 100 189.76 24.11 113.15 52.49 0 12.70 59.62 27.66 0 100 45 55 58 58 100.00 100.00 0.00 77.59 94.83 144.27 176.47 189.76 189.76 100 100 0 76.0 93.00 % Works involved Financial Amount %
Of the 58 samples selected from the completed works, during the period 2000-01 to 201213, 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 cost category of Rs. 5 lakh to Rs.25 lakh, followed by 8 works [13.79%) with a financial outlay of Rs.27.66 lakh [27.66%] were in the cost range of Rs.2 lakh to Rs.5 lakhs.
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Monitoring of MPLADS Works EXECUTING AGENCY-WISE DISTRIBUTION OF SAMPLE WORKS
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The information relating to Sample Works allocated amongst different Implementing Agencies for execution is presented in Table 4.3. Table 4.3 Sample Works allocated amongst different Implementing Agencies for execution
S. No. Particulars [Amt. Rs. lakh] Works involved Physical No. % 32 51.7 16 27.60 12 20.70 58 100 Financial Amount 100.9 43.20 38.77 182.82
1 2 3
Govt. Agencies/Departments PRIs/LMBs Societies/Trusts/NGOs Total
% 55.72 23.63 20.65 100
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 4.4 Agency-wise, SC/ST area-wise and cost-wise classification of works recommended by LS and RS MPs
[Amt. Rs. lakh] S. No. 1 Particulars Work recommended to [i] Govt. Agencies/Departments [ii] PRIs/LMBs [iii]Societies/Trusts/NGOs 2 Work recommended in [i] Rural areas [ii] SC/ST area 3 Cost wise Classification Upto 1 lakh Between 1 lakh and 5 lakh Between 5 lakh and 25 lakh Above 25 lakh 45 55 77.59 94.83 144.27 176.47 76.0 93.00 No. of Works 32 16 12 Lok Sabha MPs % Amount %
51.7 27.60 20.70
100.9 43.20 38.77
55.72 23.63 20.65
15 35 8 0
25.86 60.34 13.79 0
24.11 113.15 52.49 0
12.70 59.62 27.66 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 GUIDELINES BY DISTRICT AUTHORITY AND IMPLEMENTING AGENCIES
The Scheme Guidelines contain a detailed and elaborate procedure to ensure that the operations are efficient and effective to maximize the MPLAD Scheme potential. Adherence to the guidelines by all the stakeholders will make the scheme result-oriented, time bound and cost effective. The District Collector has been designated as the Implementing District Authority and he is coordinating and supervising of implementation of works through District Planning Officer who 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 the Scheme from the receipt of the recommendations from the MPs to the post completion of works stages, is summarized in Table 4.5
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Table 4.5 Procedure followed by District Authority in Implementation of MPLAD Scheme

S. No. Norms / Parameters Recommendation of MPs i Recommendations being received on MPs letter heads ii Suggestive shelf/basket of works maintained by DA iii MPs recommending works from suggestive shelf / basket of works iv MPs also furnish cost estimates at the time of recommendation of work v No. of works relating to education and cultural development recommended by MPs outside their parliamentary constituency vi MPLADS Plaque installed at Govt. hospitals, Municipal/Panchayat Offices regarding sanction of ambulance vii Assistance out of MPLADS extended for purchase of Books for schools/colleges/Institutes viii Assistance out of MPLADS extended to differently abled persons Assistance out of MPLADS extended for purchase of Ambulances/Hearse Sanction of works by DA ix Maximum time limit of one year for completion of work being stipulated in the sanction letter x Sanction letter contains a penal clause for delay in execution of work xi Penalty clause invoked against the agency involved xii Copies of sanction letters being sent to MP xiii No. of works where site recommended by MP changed by DA xiv No. of works where work recommended by MP rejected xv Problems experienced in obtaining clearance for any work from other agencies Sanction of works to Societies / Trusts xvi Affidavit being taken from Societies / Trusts regarding non-interest of MPs family before sanction of work xvii Undertaking being taken from User Agency for maintenance of the asset before sanction of work Maintenance of Records of Works/Assets by DA xviii DA maintaining asset register for all works created in the district under MPLADS xix DA maintaining different MP-wise books of accounts under MPLADS xx Separate data regarding execution of works in SC&ST areas being maintained by DA xxi Details of works / assets created under MPLADS being uploaded on the MPLADS website xxii Period up to which the website has been uploaded xiii All completed & and ongoing works displayed at the DA office Review Meetings taken by DA with Implementing Agencies Periodicity of review meeting with IA on MPLADS [Monthly/Bimonthly/ xxiv Quarterly/As required] MPs presence in the review meetings [Regularly/Sometimes/Never] xxv Setting up of Facilitation Centre in the district xxvi MPLADS Facilitation Centre set up in the district Provision of facilities such as computer, internet, office space etc. in the Facilitation Centre General aspects xxviii No. of training programmes conducted (last 5 yrs) xxix No. of cases in which MPLADS funds used towards State Government share in any Centrally sponsored schemes [2000 to 2012] xxx No. of works in which public/community contributions also pooled with MPLADS funds [2000 to 2012] xxxi CAG has undertaken test audit on MPLADS in the district xxxii Complaints received from public on the use of MPLADS asset/funds AFC India Ltd. (formerly, Agricultural Finance Corporation Ltd.) xxvii Status Yes Yes Yes Yes No No No No Yes Yes No No No No Yes Yes Yes
Yes Yes Yes No Some of Project No As Required Never As Required Never
4 Yes 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 been recommended 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 other administrative 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 for completion of work by the IA which is normally not more than one year. After receiving administrative approval from DA, work orders were issued by IAs. The work order does not contain 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 for delay 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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Monitoring of MPLADS Works Table 4.6 Procedure followed in execution of work

S. No. 1 Particulars Total works where User Agency [UA] was identified [a] UA identified before sanction of work [b] UA identified after sanction of work Tendering Process adopted [a] Works where process of tendering has been adopted for execution of work [b] Works where execution done directly by the Department/Agency All required clearances obtained No. of works 58
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100
22 36 58
25 75 100
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 unemployed graduate engineers. It was informed that the procedure followed is as per the norms of State Government 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 was allotted all 5 works without ensuring the competitiveness of the quotations received by calling open quotations. The work orders were issued by passing separate resolution for each work by Standing Committee indicating reason that the only firm having expertise in the field was allotted these works. It was informed that the procedure followed was as per the norm of TDO Porbandar. DA is 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. The standard sanction letters issued by the DA contain a clause stipulating the time limit for completion 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 JOINTLY 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 4.7 Sampled works converged with other Govt. Schemes/Programmes
[Amount Rs lakh]
S. No.
Work No.
Name of sample work converged
Name of Scheme/Programme with which converged
Name of the IA of the scheme with which MPLADS merged
Amount of MPLADS work pooled with the converged scheme
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Monitoring of MPLADS Works Total % Yes/No to total
Porbandar
OPENING OF BANK ACCOUNTS 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. 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 4.8 Release of advance to the Implementing Agency in respect of the sampled works
S. No. [Amt. Rs. lakh] Advance against the sanctioned cost released as the first installment to Govt. Agencies PRI/ Local Society/Trust Municipal Bodies Total No. of sample works: No. Amount No. Amount No. Amount Works in respect of which advance released up to 50% of the sanctioned cost Works in respect of which advance released up to 75% / 60% of the sanctioned cost @ Works in respect of which 100% advance released [a] Works upto Rs. 2 lakh [b] Works above Rs. 2 lakh Total Particulars
@ Effective from 15.6.2011
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Monitoring of MPLADS Works The IAs have generally been receiving funds from the DA on time. REFUND OF UNSPENT BALANCE BY IA TO DA
Porbandar
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 4.9 Status of refund of unspent balance by IA to DA
S. No. Work No. Name of works in which unspent money remained Amount of unspent balance Amount refunded by IA to DA [Amt. Rs. lakh] Avg. time to return unspent money
Total % #
No unspent balance has been reported by the IA to the DA in the sampled works included in the 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 4.10 Cost overrun sample Cases
S. No. Work No. Name of Sample Work Date of commencement of work Date of completion Original sanctioned cost [Amt Rs. lakh] Actual Reasons expenditure for cost incurred overrun
Total
No cost overrun has been reported. MPLADS PERFORMANCE ON TIMELINES

Porbandar
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 4.11 MPLADS performance on timelines
S. No. 1 Particulars Works for which recommendations of the MP received within 90 days from the commencement of the Financial Year Works sanctioned within the stipulated period of 45/75 days from the date of MPs recommendation Avg. 3 4 5 6 7 8 9 Number of days for sanction after recommendation Number of days for financial sanction after administrative sanction Number of days for release of first payment after Financial sanction Number of days to work completion after financial sanction Number of days to WCR after work completion Number of days to WCR after recommendation Number of days to UC after work completion Max. Min. No. of works
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 4.12 Details of cases sanctioned beyond the stipulated period of 45/75 days @
S. No. [1] Work No. [2] Name of the Sample Work [3] Date of receipt of recommendations from the MP [4] Date of sanction by the DA [5] Time gap [col. 54] in days [6] Reasons for delay in sanction [7]
Total Avg. time gap in sanction
[@75 days w.e.f. June, 2011]
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Porbandar
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 sites for 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 4.13 Erecting of Plaques at the sample work site S. No. 1 2 3 Name of the Asset Works involved No. Plaque installed Plaque not found but installed earlier Plaque never installed
7 3 48
%
12.06 5.17 82.75
Though the scheme guidelines very specifically states installation of plaques on all the assets 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 and inauguration dates and the name of the MP sponsoring the project has been devised by IAs for erecting such plaques. At about half of the sample work sites [82.75%] , the requisite plaques 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 the time 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 Right to Information Act, 2005 and also to attend the complaints received from the members of the public. The DA is responsible for timely and effective implementation of the work. The maximum normal period of completion of works under the scheme contemplated under the scheme is normally of one year in view of the nature of the programme. Among the sampled works,6 cases were found to have taken more than 1 year for completion from the date of sanction, which accounted for 12.06-%. The details of the sample works against which complaints received from the public as also the works completed as well as works completed beyond a period of two years are presented in Table 4.14.
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Table 4.14 Works in respect of which complaints and works completed beyond two years
S. No. Particulars [Amt. Rs. lakh] No. and amount of sample Works/Projects sanctioned Physical Financial No. % Amount %
1 2
No. of Works in respect of which complaints received Works taken more than 2 years for completion
The nature of the complaint/s and details thereof is indicated in Table 4.15 (a) below. Table 4.14 (a) Nature of complaint in respect of the sampled works received from the Public and manner of its disposal
S. No. Work No. Name of the work against which complaint received Nature of complaint
Total %#
[# % to total sample works]
ENGAGEMENT OF SOCIETIES/TRUSTS IN MPLAD WORKS The role of the voluntary sector in development is being increasingly recognized by the Government to supplement its efforts to expand the impact and outreach of its various initiatives. The Societies/Trusts /NGOs satisfying the prescribed eligibility can be considered for Community infrastructure and public utility building works execution and maintenance of assets created under the scheme. DA shall, however, identify IA capable of executing the eligible works qualitatively, timely and satisfactorily. The details regarding adherence ti\o norms by societies/trusts are furnished in Table 4.15. Table 4.15 Adherence to norms by Societies/Trusts
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Monitoring of MPLADS Works S. No. 1 2 3 4 5 6 7 8 9 10 11 12 Particulars
Porbandar Works involved No. % 58 14 14 14 2 10 14 100.00 100.00 100.00 14.28 71.42 100.00
Total Samples Works: Of which, works sanctioned to Societies/Trusts Societies/Trusts satisfying the prescribed eligibility criteria of registration, 3 years of existence, etc. Societies/Trusts submitting the prescribed affidavit on the non- interest of the MPs family members Societies/Trusts in which Office bearer/s or MMC are related to the MP recommending work Societies/Trusts from whom mandated undertaking not obtained for maintenance of the assets Societies/Trusts having sufficient resources for maintenance & upkeep of the Assets Societies/Trusts found deficient in maintenance of asset Societies/Trusts in whose case MPLADS plaque not found installed Societies/Trusts found deviating in usage of the asset from the intended purpose Societies/Trusts which had received one-time payment through single cheque Societies/Trusts reporting inspection of work site by DA officials
0.00
WORKS SANCTIONED TO SOCIETIES / TRUSTS UNDER MPLADS MORE THAN ONCE Under the extant guidelines, not more than Rs. 25 lakh could be spent from MPLAD Funds for one or more works of a particular society/trust in the lifetime of that Agency. The position of the works sanctioned to the Societies/Trusts under the Scheme more than once is indicated in Table 4.16. Table 4.16 Works sanctioned to Societies / Trusts under MPLADS more than once
S. No. Name of the Society/Trust Total no. of works sanctioned from 2000 to 2012 or as per the total list of works from which sample is drawn 1 Name of Work Amount sanctioned (Rs. in lakh) Name of the MP Year of Sanction
Bala Hanuman Kelavani Mandal
Bala Hanuman High School 10 Computer Set Pancheshwar Mahadev Education Trust Ambulance
3.00
Shri Haribhai Patel
2005-06
Pancheshwar Mahadev Education Trust
7.64
Shri Haribhai Patel
2002-03
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Van 3 Navyag School, Porbandar high 1 Navyag highSchool Computer Set 10 2.85 Shri Haribhai Patel
Porbandar
2007-08
Mull Madhav Village RameshwarTrust
Constuction of Room
2.5
Shri Vitthalbhai Radadiya
2010-11
REVIEW & MONITORING MECHANISM The purpose of project monitoring is to provide an understanding of the projects progress so that appropriate corrective actions can be taken when the projects performance deviates significantly from the plan. The regular collection and analysis of information helps in understanding the progress of the project to improve its design and functioning while in action. (a) Inspection of works by DA As per the MPLAD scheme, the DA has to inspect at least 10% of the works executed in the district during a financial year. Further, all the works of Societies/Trusts are to be inspected invariably. The MPs are also required to be involved in the inspection of the projects to the extent feasible. There was no structured and specific inspection of works by DA. The Government Agencies executing the works have a set procedure for visit of their Senior Officers to the work spots. It was reported that DA had initiated steps for taking up inspection of MPLADS works by a senior officer of the district. (b) Conduct of Review Meetings The review meetings are being held generally at quarterly intervals and are clubbed with other district level meetings. The DA invites the MPs for all meetings in which MPLAD scheme works are reviewed. It was also reported that in some cases, even on specific requests of the MPs, such meetings are organized by the DA. The meetings usually review the work-wise progress in the district and necessary actions are initiated accordingly. DA has also been holding review meetings with the IAs, on the physical and financial progress of MPLAD Scheme in the district. (c) Submission of Monthly Progress Reports (MPRs)
As per the scheme guidelines, the Implementing Agencies (IAs) are supposed to furnish physical/financial progress of work to DA every month in the prescribed Monthly Progress Report (MPR) format. However, it was observed that the IAs were not prompt in furnishing MPRs and inordinate delays were noticed. In most of the cases, MPRs were being submitted by IAs in a bunch for several works together. (d) Submission of Work Completion Reports and Utilization Certificates
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Porbandar
The field study has revealed that many IAs are not regular in submitting Work Completion Reports (WCRs) and Utilization Certificates (UCs) to DA in time. Among the sampled works, UCs in as many as 58 [100 %] works were submitted. Similarly, In most of the cases, the UCs are given by IAs upto the 2nd last installment for release of last installment. UC of final installment is not submitted by the IA to DA. Irregularity and delay in submission of such returns by IAs to DA render it difficult to maintain authentic and up-todate data / information on all works. Final installment is only released once the WCR along with photographs showing the plaque is given to DA by IA. In some cases, it was observed that edited photographs of the plaque were submitted by the IA to DA, so that the last installment is released. However, during field verification of the asset, it was observed that the plaque was never installed at the site.
MAINTENANCE OF ASSET REGISTER AND OTHER RECORDS In terms of the scheme guidelines, the District Authority is required to maintain Input formats for entering details of the works sanctioned [Annexure IV A, B,C & D ], Cash Book and other accounts books. The Asset Register should usually contain the following information: 1. Name and nature of work 2. Authority Sanctioning the work 3. Sanction Amount 4. Administrative Sanction Date 5. Technical Sanction Date 6. Financial Sanction Date 7. 1st , 2nd, 3rd installment dispersal Date and Amount 8. Utilization Certificate Date 9. Project Completion Status 10. Implementing Agency 11. User Agency DA is also required to maintain different head-wise list of works executed in an asset register for all the works created in the district. Similarly, the Implementing and User Agencies are also required to maintain necessary records of MPLADS works. DA is maintaining asset register for all works created in the district under MPLADS. The records i.e. database maintenance of the works from 2008 onwards were maintained as per the prescribed format. But records preceding that executed under the Scheme in the office of DA and IAs were found to be very poor. The prescribed Input Formats are also not being maintained. The dates mentioned in the Asset Register were found to be either incomplete or incorrect when verified with the UCs available with the IAs. Some of the columns in the register were left blank. This created a lot of problem in tracing information at the time of
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Porbandar
inspection. No records relating to reasons for delay in getting UC, WCR etc. was being maintained. The quality of maintenance of records after 2008 may be considered adequate if only dates are clearly mentioned on all the certificates and sanctions letters. DA is also maintaining a different MP-wise books of accounts under MPLADS. ADHERENCE TO OTHER ASPECTS 1. In terms of the scheme guidelines, from the year 2011-12, the DA is required to maintain a suggestive Shelf / Basket of projects including projects for SC/ST, to facilitate the MPs to pick up any work there from for recommendation. However, the DA is yet to initiate steps for implementing this innovative provision in the guideline.
(i)
MPs in the district have not given any recommendation for providing assistance out of MPLADS funds for the purchase of books for schools/ colleges/ educational institutions. Assistance has also not been extended to differently abled persons under MPLADS. The DA has ensured obtaining of clearance from the competent authorities before sanctioning of certain works. Further, the DA has not reported any problem in obtaining clearance for any work from other agencies. There has been no case of change in the work or site and cancellation before execution or stoppage of any work during execution in the District. Funding to the Societies/Trusts under the Scheme is not permissible if the recommending MP or any of his family members is the President/Chairman/Office Bearer or Member of the Managing Committee or a Trustee of the Society or Trust. Out of 11 Societies/Trusts to which MPLADS works were allotted in the sample, 10 of them] [90.90%] have submitted Affidavits that no sitting MP or his/her family member was an Office Bearer or Member of the Managing Committee in the Society/Trust. None of them have given firm commitment for maintenance and upkeep of the assets, as envisaged under the scheme.
(ii)
(iii)
(iv)
(v)
In many cases, the DA has not been able to release advance to the IAs on time and as per Scheme Guidelines. Delay in receipt of sanctioned amount from Nodal District is cited as the reason for late completion of the work. Further, the Nodal District sends the sanctioned amount in installments to the District. This is also the major cause of delay in completion of MPLADS projects. All the MPLADS Funds are being deposited in the MP-wise Savings Accounts opened in the Nationalized Banks both by the DA and the IA.
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Monitoring of MPLADS Works (vi)
Porbandar
DA has not been strictly enforcing the provision of works allocation of 15% & 7.5% in the areas inhabited by SC and ST communities respectively. Further, DA is also not maintaining separate data for SCs/STs.
(vii) The District Nodal Department is uploading the details of works on MPLADS website [www.mplads.nic.in]. The works have been uploaded up to the period 2011-12. (viii) The DA office has not displayed all the completed and ongoing works for the benefit of the people, as envisaged under the scheme. However, the list is available in the office for information and benefit of the people who intend to see and inspect. (ix) (x) MPLADS Facilitation Centre is yet to be set up in the district. No training programme under MPLAD Scheme has been conducted in the district during the last 5 years. There are no cases in which MPLADS funds have been used towards State Government share in any centrally sponsored schemes [2000 to 2012].
(xi)
(xii) There was no convergence of MPLAD Scheme funds with other Government programmes/ schemes in the district. In respect of 2 works, public/community contributions were pooled with MPLADS funds [2000 to 2012]. GENERAL OBSERVATIONS OF THE FIELD TEAM (1) Major Discrepancies / Inconsistencies in Basic Data: (i) Lots of inconsistencies were observed in the data furnished by the DA in Basic Data Format-1 (Completed MPLADS Works costing Rs.5 lakh & above), Basic Data Format-1(A) (All MPLADS Works since inception i.e., 1993-94) is not received Basic Data Format-6 (Detailed information relating to sampled MPLADS Works) is not completely filled Colmn.No.29, 30, 32, 35, 36, 37, 38, and 39 are kept blank. Date of completion report not mentioned in the form. (ii) The team cross-checked all such inconsistencies and tried to correct the position, to the extent possible. (iii) In case, despite best efforts, such inconsistencies or data gaps were unable to be removed. Typing error is the most common one found in the data furnished by the DA. In certain cases there was no date on the UC and DA staff made a rough guess on the date of UC submission on the basis of work completion report. DA appears to have some confusion regarding the column indicating date of inspection by DA. The date of Audit of asset by Implementing Agency head is not given in the proforma. (2) Non-availability of Sanctioned Work Estimates of Sampled Works
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Porbandar
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 done with 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 one no. of case the Implementing Agency 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 such work. 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. (3) Non-availability of Files / Records of Sampled Works
In respect of one no. of works, the files / records were not made available by the District Authority / Implementing Agency on the grounds that they were not traceable The team, therefore, could not undertake cross-verification or check the veracity of some of the data / information furnished by the DA/IA.
SOCIAL & ECONOMIC IMPACT OF THE ASSETS CREATED

ELIGIBILITY OF SAMPLED WORKS The details of the assets which were eligible under the scheme, encroached upon or had deviation in the intended use are given in Table 4.17. Table 4.17 Eligibility of sampled works, encroachment and deviations observed
[Amt. Rs lakhs]
S. No. 1 2 3 4 5 6 7
Particulars
Physical No. 13 % 22.41
Works ineligible as per Scheme Guidelines Works encroached upon Works diverted / deviated from its actual intended purpose Assets partially/badly maintained Assets reported not useful to the area/locality Assets against which resistance faced from people/community Assets not located appropriately
2 8 3
3.44 13.79 5.17
1.72
As could be seen from the details furnished in the above table that 13 cases [22.41%] were found ineligible. deviation in the intended use in 2 cases [3.44%]
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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%] were located at appropriate places. The details of the works found as ineligible, encroached upon, being used for the purpose other than intended etc. are contained in the Tables that follow. The details of the Assets found ineligible for undertaking under the programme are contained in Tables 4.18. Table 4.18 Details of sampled ineligible works and reasons for ineligibility S. No 1 2 3 4 5 6 7 8 9 10 11 12 13 Work No. 22 24 25 26 27 28 29 31 34 35 36 37 41 Name of ineligible work Navyag Sshool Provide 20 Computer Set M.V.Majediya Girls Secondary School For 10 Computer Set Bala Hanuman High School 10 Computer Set Shri Baluba Girls High School Computer 20 Set. Meghajibhai Madhavaji Kansagara High School 10 Computer Set. Shri H.J HighSchool Computer 10 Computer Set. Pancheshwar Mahadev Education Trust Ambulance Van. Bansidar HighSchool Computer Set 6 Navyag highSchool Computer Set 10 Maharani Baluba Girls School 10 Computer Set Aadarsh School Computer Set 3 N.K.Mehta High School Comter Set 5 Bhargdraj Muni Ashram Trust sanchalit K.B.Joshi Girls School Computer Set 10 Reasons for ineligibility Movable item Movable item Movable item Movable item Movable item Movable item Movable item Movable item Movable item Movable item Movable item Movable item Movable item
ENCROACHMENT IN WORK SITES The information relating to sampled works where encroachment was found and activities undertaken by encroachers is presented in Table 4.19.
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Monitoring of MPLADS Works Table 4.19 Details of sampled works where encroachment found and activities undertaken by encroachers S. No. Work No. Name of works where encroachment observed Individuals/agencies encroaching
Porbandar
Activities undertaken by encroachers
DEVIATION IN USAGE OF ASSETS CREATED The information relating to sampled works where deviation, diversion was observed is presented in Table 4.20. Table 4.20 Details of sampled works where deviation / diversion observed, actual Usage of the assets and reasons for deviation in use S. No. Work No. Name of the Asset Purpose for which the Asset was created Purpose for which the Asset is being actually used There is no Facility of Gathering Space (Community Hall ) Reasons for deviation in use of the Asset User agency Gram Panchayat remained unconcern about the purpose It was not used for religious and other purposes
49
Construction Library Hall of Library Hall
55
Construction Community Hall Of Community Hall
No one Take Responsibility For Maintained for the Asset So Slowly Slowly People Use as Cow Barn
TRANSFER OF ASSET BY IA TO UA In terms of the MPLAD Scheme guidelines, the IA and DA would arrange to transfer asset to User Agency without any delay and the User Agency would take the Asset on its books for normal operation and maintenance. The User Agency may be the Govt. Department, PRI/Local body and a Registered Society/Trust satisfying the eligibility criteria stipulated under the guidelines. However, it was found that there was no formal transfer agreement between the IAs and UAs for transfer and maintenance of assets in post execution phase in case of Government agencies. But in cases where user agency is Society/ Trust and IA is Government department then the asset is transferred from IA to UA.
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Monitoring of MPLADS Works MAINTENANCE OF ASSETS
Porbandar
Maintenance is very important to drive sustainable benefits of assets created and lack of it will result into loss of the initial investment made on them. It is therefore imperative that appropriate arrangements should be put in place for the community durable assets and basic facilities created under MPLADS. The position of maintenance of Assets by different Agencies and assets with poor maintenance record is presented in Table 4.21. Table 4.21 Agencies maintaining sampled assets created under MPLADS S. No. 1 Name of the Asset Works involved No. Assets maintained by the Implementing Agencies (IA) Assets maintained by the users No Maintenance at all %
2 3
The information relating to sampled works with poor or partial maintenance is presented in Table 4.22. Table 4.22 Details of sampled assets with poor or partial maintenance S. No. 1 2 3 4 5 6 7 8 Work No. 3 7 11 13 20 27 55 58 Name of assets where maintenance found very poor Kadacha Village Constuction Of Proction Wall. Construction of Class room 4 for Mitrala Primary School Constuction of Bapodar Kerala Marg Canal. Kerala Village canal Blasting. Construction of canal. Meghajibhai Madhavaji Kansagara High School 10 Computer Set Construction Of Community Hall C.C Road Reasons for poor maintenance No Sufficient Fund available with user agency No Sufficient Fund available with user agency No Sufficient Fund available with user agency No Sufficient Fund available with user agency No Sufficient Fund available with user agency No Sufficient Fund available with user agency No Sufficient Fund available with user agency No Sufficient Fund available with user agency
Of the total 8 works not being maintained properly or being maintained poorly, majority 8 [50%] are of drainage system, followed by 3 [18.5%] of Cultural Hall activity, 2 each [12.5% each] of Gym and Road activities and 1 [6.25%] of computer purchase. The non maintenance of drains is causing health problems.
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Many UAs appear to be submitting undertakings for proper maintenance of the assets in a routine manner with no intention to fulfill. There was absence of sense of ownership and negligence in maintenance of the assets created. NON-UTILITY ASSETS The ultimate aim of the MPLAD Scheme is that the assets created under it should have utility to the local community and role in the development of the people and area. The details of the Assets from the sampled works not found useful by the local community are contained in Table 4.23. Table 4.23 Details of sampled assets found of non-utility to the local community S. No. 1 Work No. 5 Name of assets found of not use to the local people/community Construction of Class room3 For Bhodadar Primary School(Part 1) Construction of Class room3 For Bhodadar Primary School(Part 2) Construction of Class room 4 For Nerala Primary School Reasons for nonutility Also New Construct Class room another Central Govt. Schemes Also New Construct Class room another Central Govt. Schemes Class Room is Demilise & Constuction Of Community Hall
ASSETS AGAINST WHICH RESISTANCE FACED The information relating to sampled assets which faced resistance during the stage of its execution is presented in Table 4.24. Table 4.24 Details of sampled assets which faced resistance during the stage of its execution S. No. Work No. Name of assets against which resistance faced from the local people/community Reasons for resistance Type of people associated with resistance Local users (Yes/No) Political groups (Yes/No) Others (Yes/No)
APPROPRIATENESS OF LOCATION The information relating to sample asset not been considered as appropriately located by the people local people is presented in Table 4.25.
Porbandar
Table 4.25 Sample Assets not been considered as appropriately located by the local people S. No. Work No. Name of the work/asset Present location Location visualized better by the local community
[% # to the total sample works/assets] IMPACT OF ASSETS Impact evaluation is an assessment of how the intervention being evaluated affects outcomes on the local social, economic, environmental and other development indicators whether intended or unintended. The fulfillment of the felt needs of the local community may be adjudged by the extent of the assets have been found useful by it. The views of the local community on the impact [both positive and not positive] of the assets to it are consolidated and collated in Table 4.26. Table 4.26 Impact of assets on local community S. No. 1 2 3 4 Particulars Works involved No. Total Sample Works Assets having positive social / cultural impact Assets having positive environmental impact Assets having long term durability and leading to sustainable development Overall Positive Impact 58 38 42 33 %
52
It could be observed from the details furnished in the above table that the majority of 38 have created positive social, cultural, environmental impact in the area. These assets have an overall positive impact on the beneficiary community. Further as many as 33 works were found to be of long term durability and leading towards sustainable development. The work is not appropriately located at a convenient and near to user community area. The information relating to sampled assets not having positive overall impact is presented in Table 4.27. Table 4.27 Details of sampled assets not having Positive overall Impact S. No. 1 Work Name of the sampled asset No. 19 Constuction of Boundry wall & Toilet Reasons for not having positive impact Compound wall mainly use for define
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Monitoring of MPLADS Works boundary and protection purpose
Porbandar
It could be observed from the above details that a total of 1 works were considered as having no positive impact as per the reasons furnished there against in the respective column. A few of the works relating to the drainage system initially had a positive impact but in the absence of proper maintenance, have created negative and harmful effect for the local community, at present.
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CHAPTERV ISSUES, SUGGESTIONS AND RECOMMENDATIONS
The MPLAD scheme introduced during 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. 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. During the conduct of the present study in the district, the main focus was laid on evaluating the role of different Agencies in the implementation of the Scheme, undertaking physical verification of Assets created, examining adherence to GoI guidelines on the implementation of the Scheme and making an assessment on the utility / impact of the Scheme to improve project delivery. The sample works in respect of this District 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 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. During the course of the study, frequent interactions with the officials of DA, IA, and UA as also with villagers and people in the district, many issues emerged. Besides, the outcome of the study also threw some light on certain issues from which an attempt is being made to draw a set of suggestions and recommendations to ensure that the desired benefits or improvement reach the constituents. 1. Maintaining Suggestive shelf / basket of projects in the District
The funds are often observed disproportionately flowing into a few of the sectors because there is no proper mechanism developed to determine locally felt needs leaving open to such lopsided development situations. It has been made mandatory for the DA from the year 2011-12, to maintain and make available to MP a suggestive Shelf /Basket of projects including projects for SC/ST, to facilitate the latter to pick up any work therefrom, for recommendation. The District Authority Office has not been maintaining any suggestive shelf/basket of works based on the felt needs of the local community, which could be taken up for implementation under the Scheme. The MPs have recommended works in the District as per their own perception or suggestions received from other quarters. In the process, the genuine felt needs of some of the sections of local community may get overlooked.
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The DA may take up this task on priority basis. However, for preparing of the requisite shelf/basket of works of the real value, there is an imperative need for conducting surveys across the constituencies of the MPs by involving volunteer sector, PRIs and the local community, in order to assess the needs of the constituents better. The main objective should be to undertake those projects which lead to the welfare of the local people, in general, and the disadvantaged and the poor, in particular, keeping in view the availability of resources. The list prepared on that basis after effective engagement with the community, would really facilitate the MPs to identify areas and sectors where the scheme interventions could be made and to prioritize his/her plan/ recommendations. The list may be reviewed and updated from time to time in the light of the new developments. 2. Maintaining of separate data in respect of SC/ST areas
The areas inhabited by SC & ST communities are to be bestowed special attention and work allocation of 15% & 7.5% respectively in such areas is to be made every year. Funds are to be inter-changed in case of non availability of one community in favour of the other, if inhabiting the area. The DA has not been found enforcing this provision of the guidelines, which may be ensured to ensure equity & fair distribution of works. To enforce this provision of the guidelines, the DA has to 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
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. He has, however, not adhered to the time schedule in the matter of according his sanction in the majority of the cases and there were no plausible reasons for the delay. The DA needs to streamline its systems and procedures to ensure that in future all the proposals received from the MPs are disposed off within the stipulated period which has since been increased to 75 days for the purpose of sanction. 4. Augmentation of Staff in DA Office / establishment of MPLADS Cell
Human Resource is one of the key factors and most valuable asset for an effective implementation of any programme. The non-compliance of many provisions of MPLAD Scheme in the district, as observed in the present study, were attributed to the staff constraints both by the DA and the IAs. It is considered, in the interest of the proper and effective implementation of the scheme, that the position of the staff engaged in MPLADS works may be reviewed, and shortage/readjustment removed/done, based on the standard
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work norms. The MoS&PI can also work out a model of minimum complement of staff for the MPLADS Cell in the district. 5. Training of District Level Functionaries
Training is an effective up-front quality assurance measure, focusing on purpose-oriented skills training methods to match capacity Building with Programme Requirements. It is imperative that the officials at the implementation level are well versed with the MPLADS Guidelines and are able to correctly and scrupulously adhere to the same for effective implementation of the scheme. The training programmes for the staff involved in the implementation of the programme are, however, not being organized at the District level regularly. During the last 5 years, no training programme for the concerned staff has been conducted. The Districts should organize training programmes / sensitization workshops on regular basis to keep the concerned members of the staff updated on various facets of the implementation of the scheme which has undergone many changes. There may also have been change in the posting of the staff of MPLADS desks. The staff posted in the cell may be deputed for training programme to be organized by the State Nodal Department on MPLADS and general accounting to acquire knowledge, skills/tools and abilities that will allow them to fulfill the requirements of their job more effectively. This has become all the more necessary due to enhancement in the annual allocation to MPs from Rs.2 crore to Rs.5 crore from the year 2011-12 resulting in increased workload. 6. Monitoring & Review Mechanism
Monitoring and Controlling progress of a projects implementation plays a very important role in the successful implementation of a project. The site inspections, Monthly Progress Reports and Review Meetings are the tools designed under the scheme for operational monitoring of works. Monthly Progress Reports [MPRs] are essential for fact-finding so that the monitoring authorities can concentrate on problem solving. The DAs have not been receiving all the MPRs from the IAs on regular basis. The reports are often sent in bunches. Organizing of periodical meetings is an important way to facilitate communication and networking between the partners about the project development, deliverables, outputs or issues and planning. This objective could be achieved if the meetings are well managed and organized at regular interval throughout the project lifetime. There is not any periodicity fixed for holding Review Meetings on the progress of the scheme in the Districts. The meetings are organized as and when felt necessary and normally tagged to the other meetings.
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The Senior Officers of the District Authority as also of Implementing Agencies have the responsibility of visiting the work spots to ensure satisfactory work progress as per the prescribed procedures, specifications and time schedules. The District Authorities have, however, not put in place any definite monitoring mechanism. The concerned officials including the District Authority were reported to be undertaking visits to the work sites of and on. But records on the Monitoring Mechanism adopted by the DA and different IAs and the Year-wise details of visits/inspections undertaken were not maintained / available. No inspection Register was being maintained at work sites. There is, therefore, a strong need for a greater focus on regular monitoring by the District Authorities. The DAs should inspect all the works of the Societies/Trusts and at least 10% of other works as per scheme guidelines, hold regular review meetings and ensure that MPRs are submitted by the IAs on time. An inspection Register should also be introduced wherein details of the visits- date of visit, observations on the progress of the works and its quality aspect etc. should be recorded to maintain transparency in the system. Non -availability of an adequate infrastructure and logistics support with DAs seems to be the main reason for slack monitoring of the projects. Further, the MPLAD Scheme works consist of a large number of projects dispersed over a large geographical area making the same difficult to monitor. One way to overcome this situation would be to involve PRIs with the monitoring of MPLADS works. The Panchayats have the better information base. The PRIs are other-wise also expected to be made a part of the Planning and Monitoring process of the MPLAD Scheme works under the guidelines of the Ministry. There has, however, been no progress recorded in the District in this regard. 7. Assets Management
Maintenance of assets created is a major problem and identified another area of weakness of the scheme. This seems to have received less attention than it deserves. The Implementing Agencies have transferred most of the assets to the User Agencies which include, Municipal Committees, Gram Panchayats and beneficiary Societies/Trusts. A substantial number of the assets created under the Scheme were found to be suffering from poor maintenance. The fund constraint was pleaded as the major reason for not maintaining the assets properly. It is rightly said that while maintenance does not cost very much, the lack of it costs a great deal, in terms of the capital loss of the initial investment made on them. The creation of infrastructure should, therefore, be backed by reliable systems of service provision and maintenance. 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 sanctioned without creating a local institutional set-up with user participation, which has a stake in the maintenance. The UA should have adequate resources and manpower available with it, to
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undertake the maintenance work of the Asset and action need to be taken against any defaulting Agency in terms of the agreement entered into by it with the Government, in this regard. While the Government IAs have the budgetary support for maintenance of assets retained by them, the PRIs/LMBs may have to raise their own resources. In case of Societies/Trusts, only such of them may be considered for sanction of works as may have the capacity to undertake maintenance of the assets. 8. Erecting of Plaques at the work sites
A plaque is one of the best ways of highlighting the contribution of an individual in promoting the growth or development in the local area to foster community interest. 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 sites for greater public awareness and transparency. The study has revealed that in many of the sampled work sites, plaques were not found erected or reported to have been stolen/removed later on. This makes the identification of the assets created under MPLAD Scheme difficult since similar works are also being carried out under other Government sponsored programmes/schemes. In a few cases, the Plaques were not positioned properly and also those were not with the prescribed inscription. This defeats the very objective of transparency and public awareness, in installing the plaques. The DA needs to take a serious view in this regard and direct all the IAs to install /paint Plaques at all the work sites. The Plaques should further be permanent on Stone/Metal with the inscription MPLADS Works, indicating the cost involved, commencement, completion and inauguration dates and the name of the MP sponsoring the project, as given in the scheme guidelines. 9. Maintenance of Input Formats
Records are essential and vital documents that support operations of an organization enabling it to access the information it requires. Records also enable an organization to meet its accountability, transparency and compliance requirements. In terms of MPLAD Scheme guidelines, the DA has to maintain data in prescribed input formats viz. Annexure IV-A, B and C for each work which is not being maintained, as envisaged. DA should ensure maintenance of these Input formats for each work. Similarly, IAs are required to maintain Annexure IV-D format for data entry for each work implemented by them which should be strictly enforced by DA.
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The District Authority is maintaining head-wise Asset Register containing details of the works sanctioned under MPLAD Scheme. However, much of the information in respect of many works was not updated in the related columns of the Register. The records i.e. database maintenance of the works executed under the Scheme in the office of DA and IAs were found to be not being maintained properly to get any authenticated and prompt information. The DA is also maintaining a different MP-wise books of accounts under MPLADS. Records can be maintained in any format - physical [paper] and electronic. The DA may explore the feasibility of shifting from a fully paper based records system to a predominantly electronic system, which is being done by many organizations, for ensuring prompt and accurate information. 10. Audit of the MPLADS Works
Institutionalization of this process of auditing of MPLADS is essential to see if these funds are being used effectively. An Audit affords an opportunity to uncover the issues, concerns and challenges encountered in the execution of a project by using quantitative and qualitative assessment tools to measure performance outcomes. As per the Ministrys guidelines, accounts and UCs will be audited by the CA/Local Auditor / Statutory Auditor as per the State Government procedure. In addition, CAG may also undertake a few test audits. While financial audits were reportedly done, there was total absence of work audits. The DA is suggested to draw a time-bound programmme for auditing of works through a proper agency as required under the scheme. 11. Use of Website
Use of Web is gaining importance as a potent tool to bring greater transparency and accountability in the governing process and delivery of service to the citizens. The District Authority is required to upload the details of the work sanctioned on the MPLADS website [www.mplads.nic.in] or transmitted to the MoS&PI, GoI for hoisting the same in its website. Since the operation of the scheme is to be put in the public domain for bringing transparency and accountability in the system, the regular updating of data at district level is critical to present the true picture of the progress of the scheme. The data of MPLADS works implemented in the District were being uploaded on the MPLADS website along with photographs of works costing Rs. 5 lakh and above, but the same is not being done regularly. The DA need to initiate immediate required steps to upload the data on the website. If necessary, a special temporary cell may be set up under one Officer in District Planning Office to take up the data uploading task on priority basis to be completed within the stipulated time frame - say three months. The progress may be watched at an appropriate senior level in the DA Office.
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Monitoring of MPLADS Works 12. Setting up of facilitation centre at the District
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From the year 2011-12, MPs are entitled to recommend funds for setting up of MPLADS Facilitation Centre in the nodal district. The concept of common facilitation centre in each district to provide information about progress of MPLAD Scheme is yet to take off. The developing of a Facilitation Centre equipped with computer and internet facilities, will prove very useful in providing all information about the on-going MPLADS works in the district, information on all the completed works, up to date financial information and up to date MPLADS guidelines and circulars, at one place for the effective implementation of the programme. Such facilitation centers are very much necessary to create awareness about the scheme to general public and to ensure transparency. Appropriate action in this regard is expected of the DA. 13. Documentation of Pre-work Condition
No evidence of pre-work condition at the location of the assets is found to be on record. There is no practice to have on record any photographs of locations showing predevelopment position/condition. It is, therefore, suggested that the DA should initiate measures to place on record some photographs of the pre-work condition of the proposed work location and document it for records. DA may also stipulate the condition of predevelopment photographs before according its sanction of work to IA. This practice will substantiate the necessity of work at the recommended site, the extent of development / improvement happening on account of work and will also help measure the impact of the work on local area, community, environment and overall economy. After completion of the work, a photograph of the pre-work condition and 2 to 3 photographs of the completed work should be placed in the file as well as on the website. 14. i. General Aspects DA should take steps to ensure proper upkeep and maintenance of files / records pertaining to MPLAD Scheme. Work-wise and MP-wise separate files may be maintained. MPLAD review committee meetings should be held regularly at least every quarter invariably in which MPs from the district should be invariably invited. A register to record the minutes of such meetings should also be introduced and properly maintained. Further, the MPLAD Scheme review meetings should not be clubbed with other meetings conducted at the district level to ensure undivided attention and focus to this prestigious scheme. Any work which needs proper maintenance and care after completion should be undertaken only when a proper user agency is ready to take the responsibility and has capacity to carry it out.
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ii.
iii.
Monitoring of MPLADS Works iv.
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IAs are required to ensure that the work is executed as per the sanction granted by DA. In case of any deviation from the sanctioned estimates and specifications, IA should seek revised sanction from DA before commencement of execution. IAs should ensure that the completion certificate is given only if work is completed as per sanctioned plan & estimates and not on the basis of sanctioned expenditure incurred. The DA should scrutinize the recommendations received from the MPs more closely to ensure that no ineligible works are sanctioned A firm commitment from the user Agency/IA should be obtained in advance for proper upkeep and maintenance of the asset as in the absence of proper maintenance the initial investment made on the asset will be lost with the passage of time. Similarly, an Affidavit in the prescribed format that the recommending MP or any of his family members is not the President/Chairman/Office Bearer or Member of the Managing Committee or a Trustee of the Society or Trust should be obtained from the beneficiary Societies/Trusts before sanctioning of the work to them. DA should ensure before sanction that the upper limit of Rs. 25 lakh during the entire lifetime of any Society/Trust and within the total entitlement of an MP during the year is kept in view while sanctioning works. A few cases of encroachment and deviation in use of the asset for the purpose other than the intended one have been observed. Action against the Societies/Trusts which have violated the terms and conditions of the contract of sanction of works in their favour, should be initiated The DA should use only the standard format of sanction letter which inter-alia contains a penalty clause for delay in completion of work, which was found missing. In a few cases, advance has been released in the first installment in excess of the limit prescribed in the scheme guidelines. The DA should ensure that in future advance is released as per the scheme norms only. Introducing concept of Social Audit
v.
vi. vii.
viii.
ix.
x. xi.
15.
The MPLAD Scheme which started with a modest target in 1993-94 has grown enormously both in scale and ambit since then. In India where large scale public welfare schemes are run by the Government, leakage of funds in public programmes and misuse of shareholders' and stakeholders' resources is a commonly perceived scenario. Social audit is an innovative mechanism that can create the enabling conditions for public accountability. Social audit is proposed as a supplement to the conventional audit to help any programme Implementing Agency for understanding and improving their performance as perceived by the stakeholders. It is felt that the scrutiny would create much needed pressure on the district authorities and implementing agencies to act in accordance with the mandated rules
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and procedures. It will also examine whether the work done under the scheme is really benefiting the target group and whether the impact is of outcomes or outlays only. It is, therefore, recommended that Social Audit concept which is considered very relevant to this scheme may be given a trial for the sake of more transparency and accountability and thereby brining improvement in its implementation.
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Monitoring of MPLADS Works

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

Monitoring of MPLADS Works

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

Monitoring of MPLADS Works

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

Monitoring of MPLADS Works

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

Monitoring of MPLADS Works

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

Monitoring of MPLADS Works

Monitoring of MPLADS Works

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

Monitoring of MPLADS Works

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

Monitoring of MPLADS Works

Monitoring of MPLADS Works

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

Monitoring of MPLADS Works

NEED FOR BASIC INFRASTRUCTURE

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

Monitoring of MPLADS Works

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

Monitoring of MPLADS Works

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

Monitoring of MPLADS Works

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

Monitoring of MPLADS Works

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

Monitoring of MPLADS Works

CHAPTERII APPROACH & METHODOLOGY OF THE STUDY

BACKGROUND OF THE PRESENT STUDY

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

Monitoring of MPLADS Works

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

Monitoring of MPLADS Works BASIC DATA FORMATS

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

Monitoring of MPLADS Works

Monitoring of MPLADS Works

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

Monitoring of MPLADS Works ORGANIZING OF THE REPORT

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

Monitoring of MPLADS Works

CHAPTER-III AN OVERVIEW OF IMPLEMENTATION OF MPLAD SCHEME IN THE DISTRICT

PROGRESS OF MPLAD SCHEME IN THE DISTRICT

10.00 21.43 2.38 0.95

48.68 107.44 9.64 12.31

10.44 23.05 2.07 2.64

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

Monitoring of MPLADS Works

Porbandar 14 0 6.67 0.00 29.40 0.00 6.31 0.00

10.95 46.19 0.95

61.79 191.33 4.00 1.50 0.00 466.08

13.26 41.05 0.86 0.32 0.00 100.00

1 0.48 0 0.00 210 100.00

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

88. 57 0.0 0 11. 43 100 .00

404.22 0 61.87 466.09

86.73 0.00 13.27 100.0 0

0.00 95.83 0.00

0.00 54.23 0.00

0.00 87.65 0.00

10.00 21.43 2.38