With Sector-Wise Thrusts in Development, the Respective Line Ministries/Departments Are

Chapter-5

Convergence

5.1 Introduction

A multi-pronged developmental strategy has been adopted by the Government of India to promote economic growth with social equity by addressing the needs of the marginalised groups in the country. Different Ministries of the Government of India have a number of programmes for creating employment opportunities, social security measures, providing basic minimum services, building infrastructure and managing land and water resources for sustainable development and thereby alleviating poverty. This strategy is facilitating the village economy to emerge from subsistence to self-sustenance.

With sector-wise thrusts in development, the respective line Ministries/departments are issuing guidelines for preparation of sector development plans such as District Health Plan, District Education Plan, District Water and Sanitation Plan, District Agriculture Development Plan, District Rural Road Development Plan, etc.Increasing incidence of the preparation of such plans is coming in the way of preparing horizontal integrated plans.

In order to use resources efficiently and involve the local governments actively, i.e., to apply the principle of subsidiarity in practice, co-existence of horizontal coordination and vertical consolidation are instrumental, where local governments and other planning entities work together and plan development together.With sector-wise thrusts in development, the respective line Ministries/departments are issuing guidelines for preparation of sector development plans such as District Health Plan, District Education Plan, District Water and Sanitation Plan, District Agriculture Development Plan, District Rural Road Development Plan, etc., increasing incidence of the preparation of such plans is coming in the way of preparing horizontal integrated plans. They are implementing various rural development programmes through a set of guidelines and by separate set of administrative and institutional mechanisms. In order to facilitate the horizontal planning process at various local governments’ level, the tendency to build scheme-specific guidelines needs to be modified to bring uniformity in planning, sanctioning, release of funds, implementation and monitoring and evaluation of the programmes.Interestingly, all the guidelines stipulate inter programme coordination and convergence. Broad procedures and processes are similar in many ways in these programmes. But the approval system and implementing agencies are different.In this context, the Ministry of Rural Development has taken a major initiative to converge its various programmes with programmes implemented within the Ministry and other Ministries like agriculture, environment and forest, etc.

The objectives of convergence are not dissimilar to that of BRGF.Convergence at the grassroots implies integrated grassroots planning and implementation.

5.2 Background

The Committee during its deliberations in its second meeting held on 31.10.2009, constituted a Sub-Committee to study the approval systems for flagship programmes and to

•Identify the major flagship programmes for local area development and document their outlay.

•Study the institutional arrangement for approval in detail including–who prepares the plan; who approves; who sanctions; and who implements;

•Study the opportunities for convergence and suggest measures

This chapter on convergence is based on the Report of the Sub-Committee. The text of the Report of the Sub-Committee is in Annexure - 10.

In addition, the NIRD has also studied convergence in 123 selected districts of the country and the Report of the same is also available; the findings of the Report are also being relied upon for drafting of this part of the Report; overview of the report is placed at Annexure – 15.

Besides, the MoRD had also appointed a Sub-Group for preparation of recommendations as to how to carry out convergence within the programme structure of the MoRD; the recommendations of the Sub-Group are at Annexure- 15.

5.3 Why Convergence?

The Central and State Governments are spending large amounts for the development of rural areas and improving the living conditions of the people. Several programmes have been launched to achieve these objectives. Many of the programmes planned and executed by different ministries/departments/agencies have almost similar objectives and targeting the same groups/areas. This plethora of efforts has been resulting in wastage of resources and failure to achieve synergies. Evaluation studies have been critical of the leakages, inefficiencies and ineffectiveness of the programme designs and implementation of the rural development programmes. Lack of transparency, use of obsolete technologies, lack of coordination among agencies, non-participation of the target groups in planning and execution, lack of qualified personnel in adequate numbers and top-down approaches have been identified as some of the major determinants of the sub-optimal use of the scarce resources. The continuance or slow progress in the removal of poverty, unemployment, food insecurity and environmental degradation are the outcomes of non-convergent and non-participatory planning processes. Other areas of concern are adoption of less productive technologies and limited institutional capacities. Development planning process should be sensitive to these challenges. Convergence is particularly important in backward districts and is, then, an essential part of BRGF.

It is to be noted that, in the past, attempts have been made by some departments, officials and institutions to overcome some of the above mentioned constraints. However, these efforts are isolated and sporadic and organised attempts are needed to institutionalise the same. Such initiatives have paved way for the emergence of ‘convergence planning’ concept and this planning process aims at achieving maximum and sustainable benefits (outcomes) to community and the poor from various development programmes. This is possible by pooling human, capital and technical resources in an organised and participatory manner for convergent action by all the stakeholders.

5.4 How Convergence

Convergence planning can achieve multiple goals such as maximization of returns from the investment, promotion of public private-community partnerships, sustainable development, meeting the unmet needs of the community and emergence of good governance. The instruments include pooling of resources, both human and capital, transfer of productive and eco-friendly technologies and value addition through provision of backward and forward linkages. The ‘how’ part is described below.

(a) Goal Congruence among the stakeholders

The achievement of objectives without compromising on essential conditionalities of the converging programmes will form the bottom line of partnership(s). The discussions would facilitate realisation among the stakeholders that convergence approach would help everyone to realise the common goal of poverty reduction and creation of quality and durable assets.

(b) Local needs, problems and other issues

Bottom Up approach has been the hallmark of decentralisation. People’s participation in planning and implementation of development programmes would provide more space to the socially and economically disadvantaged in the decision making and assigning priorities. The participatory planning process is expected to identify the local needs and problems and the convergence planning and implementation will ensure that the goals are fulfilled.

(c)Identifying potential areas/activities/schemes for convergence

The existing perspective/annual plans of various schemes in the selected area will be studied and discussed in the district/block level consultations to address the identified needs.

(d) Technical Know-how and administrative guidance

Top Down approach in dissemination of technical knowledge is usually followed in practice, but the characteristics of the technology should address the concerns of the functionaries as well as the community.

Since technical upgradation or introduction of appropriate technologies is envisaged as an integral part of the convergence planning, the characteristics and consequences including risks, if any have to be shared with all the partners. The convergence process is an opportunity to the technical institutes to reorient their R&D activities so as to make them relevant to field problems.

(e)Activity

Time chart (Gantt Chart)[1] for programmes/schemes converging and re-alignment: knowledge of the activities which will be taken up during the project time-frame under the programmes considered for convergence is a pre-requisite for all partner agencies. The Gnatt charts can be super imposed with special reference to the activities identified for convergence and also those which need advanced technical input(s). The discussions on the timing, duration, fund and manpower requirements to execute the tasks and processes to be adopted and also the (specific) functionaries to be associated will help in working out the action plan.

(f)Role clarity among stakeholders

The above exercise has twin advantages of bringing greater role clarity among the functionaries and also appreciation of the relevance of others’ role. Such participatory processes will enhance respect for others while ensuring better coordination among the departments. This also provides an opportunity to resolve the problems / irritants among the stakeholders.

(g)Funds flow consistent with activity – time-frame

Since timely flow of adequate funds has been identified as one of the constraints in execution of projects without time and cost overruns, there is need to have some convergence fund at the district level to advance money in case of delays in release of funds. The quantum of this fund needs to be assessed by the district resource group and the Centre and State Governments need to support this. To began with, if some flexibility (say 5 to 10%) is allowed for convergence and innovations, the problem can be solved to some extent.

(h) Consultations with the stakeholders at various levels

The district level proceedings will be shared with the stakeholders of the (pilot) block in the consultative workshop to be held at the block level. If there are specific comments / suggestions, these will be sent to the district resource group chaired by the district collector for consideration. The exercise has to be repeated at GP /Village level. This iterative process will streamline the preparation of action plan for convergence.

(i)New Activity Mapping as per convergence plan – Gnatt chart

The consultative workshops should enable the related agencies /departments to prepare the (new) activity mapping and time frame for collective action as per the outcomes / suggestions emerged in the workshop. This convergence plan should be prepared at the unit of planning which should be the reference point for all the stakeholders associated with implementation of the programmes / schemes.

(j)Capacity Building

Since the new working arrangements under convergence demand a new work culture and also different roles for various stakeholders at different levels, the capabilities of these functionaries and also community have to be built so that the action plan will be effectively and efficiently implemented. As far as imparting of knowledge inputs including technology is concerned, the functionaries need to be educated on the benefits, costs and risks associated with the new technologies vis-à-vis the technologies in vogue; while the elected members and community need to be informed in a jargon-free manner.

5.5 Major flagship programmes for local area development

Approximately, there are 133 Centrally Sponsored Schemes (CSSs) being implemented by different Ministries of the Central Government. The following flagship programmes receive high priority in allocation of funds among CSSs with the purpose to attain national goals and objectives. More than 70% of funds under CSSsare allocated to these flagship programmes. All these Flagship Programmes are under the ambit of Panchayati Raj Institutions as per the 73rd Constitutional Amendment.

Table-5.5.1 Major flagship programmes under CSSs

Source:

5.6 BRGF-MGNREGA Convergence

The Committee takes note of the guidelines on convergence of MGNREGA issued by the Government of India. Schedule I Rule 1 provides that MGNREGA works can be undertaken in respect of nine items of work, out of which six items are related to development of water resources, irrigation, flood protection and drought proofing. This makes MGNREGA, a natural programme for convergence with the agriculture led programmes.

MGNREGA has a budget of Rs.40, 100 crore for the year 2010-11. Expenditure of the budgeted amount makes it obligatory on part of the Programme Managers that the projects undertaken converge with other programmes. The Committee feels that MGNREGA will be able to achieve its programme objectives only where it is able to converge with other programmes.

BRGF is a programme designed to ensure convergence. This programme is not a stand-alone one. It is capable of convergence with any other programme in rural development. The BRGF also provides a more expansive and broader framework for convergence. Hence, BRGF provides the platform for convergence for not only MGNREGA, but for a host of other programmes from other Ministries.

A question is raised about the stage at which convergence is to take place. The Committee is strongly of the opinion that the exercise of convergence begins with the process of grassroots planning and at the grassroots.

The main instrument of convergence has been provided by the Report of the Committee on Planning at Grassroots by Shri V. Ramachandran. This Report provides that planning should start with self assessment of needs.Provisioning of Funds follows the assessment of needs and preparation of plans. If, we were to take convergence of MGNREGA, we find that it has great affinity with the programmes under Water Resources Department. The objective of MGNREGA is to enhance livelihood security in rural areas by providing at least 100 days of guaranteed wage employment in a financial year to every household whose adult members volunteer to do unskilled manual work, creation of durable assets and strengthening the livelihood resource base of the rural poor. The Integrated Watershed DevelopmentProject in rain-fed areas is a well-funded programme and has the objective of developing watersheds in unirrigated areas and particularly relevant for backward districts.The objective of Command Area Development and Water Management (CAD & WM) is efficient utilisation of created irrigation potential. The objective of Repair, Renovation and Restoration of Water Bodies is to restore and augment storage capacities of water bodies and also to recover and extend their lost irrigation potential. The objective of Dug Well Recharge Skill is to recharge groundwater. The objective of Groundwater Management and Regulation Scheme is to demonstrate the efficacy of artificial recharge and rainwater harvesting techniques. The objective of Flood Control and River Management Works is to take up flood management works in an integrated manner.The objective of Accelerated Irrigation Benefits Programme is to promote major, medium and minor irrigation projects, extension, renovation and modernisation of major and medium irrigation projects.The objective of Farmer’s Participation Action Research Programme is forfield demonstration of technologies developed by the Institutes which will enhance yield and income per drop of water. Since, BRGF is not a scheme like any other Centrally Sponsored or Central Sector Scheme, it has the flexibility to assimilate all the above schemes into a planning structure.

However, the knowledge of the programmes at the grassroots is limited.In a recently concluded meeting of women Sarpanches organisedby PRIA,the participants were not able to identify more than five schemes being implemented in their Panchayats. Even within the identified schemes, they were not able to identify the programme content. Planning begins with knowledge. Hence, dissemination of knowledge is a part of the convergence process.

5.7Setting Goals for Convergence

At present, the convergence exercise is confined to issuing of guidelines.No goals have been set in terms of physical and financial achievements and hence, in such a situationconvergence guidelines do not impact at the ground level.

The NIRD studies on convergence reveal that although convergence has not taken place at the national or the State levels, there is evidence at the grassroots level where it has materialised; they are aware either of the coercive arms of the State or of the development functions represented by the person of the BDO; they are not aware of the departmental fragmentation at the State or the national levels; this allows for easier convergence at the grassroots.

5.8The KERALA experience in Convergence

In Kerala, Palakkad, Mallapuram & Trivendrum districts were selected to take up convergence pilots with MoWR. Mallapuram is also identified for ICAR convergence. Wayanad has to take up pilot projects in collaboration with MoE&F.

The process of convergence had taken off in Kerala well before the Central level guidelines were issued. State level convergence meetings were conducted with the Heads of Departments, discussed the possibilities, and need for convergence of Water Resource Schemes, Forest works, and Agriculture schemes with MGNREGS. The State Government has issued the framework for convergence of Water Resources Projects, Forest works and Agriculture Development Projects with MGNREGS in the form of guidelines. The guidelines clearly spell out the roles and responsibilities of various functionaries of MGNREGS and other Departments.

Coordination meetings were organised by the District Programme Coordinators at District, Block and Village level between Local Self-Government, Water Resource Department, Agriculture Department and MGNREGS functionaries to take up the works under MGNREGS.

The process of planning, implementation and monitoring is quite decentralised in Kerala. Identification of worksis generally done by the local committees along with ward members and officials of concerned department and placed before the Gram Sabha (GS) for approval. Once the GS and GP approved the works, estimations were prepared either by Asst. Engineer/Overseer of GP or by the department concerned. Implementation of works related to other departments is done by the Area Development Societies / VSS / Farmer unions (Community Based Organisations). These Community Based Organisations are only responsible for maintenance of Muster Rolls, site diary, and other documents. After completion of work, the technical persons from concerned department take the measurements and prepare the payment vouchers. After scrutiny of muster rolls and measurements, the GP make the payments through the SB accounts of workers. All officials were given the responsibility of monitoring of works during implementation. The State Government has fixed the responsibility on various state level officers to monitor MGNREGS works in different districts.