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Performance Evaluation of Statutory Development Boards in Maharashtra

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Performance Evaluation of Statutory Development Boards in Maharashtra Performance Evaluation of Statutory Development Boards (SDBs) in Maharashtra Programme Evaluation Organisation Planning Commission Government of India Contents 1. Introduction 2. Objectives and Scope of the Study 2.1 Objectives of the Study 2.2 Methodology 2.3 Data base of the Study 2.4 Reference Period 3. Statutory Development Boards: Physical Features and Working Mechanism 3.1 Population Composition 3.2 Literacy Rate 3.3 Health Institutions 3.4 Per Capita Income 3.5 Statutory Development Boards 3.6 Composition and Working Mechanism 3.7 Term of Office 3.8 Functions of the Development Board 3.9 Staffing Position 3.10 Coordination 4. Regional imbalances and Statutory Development Boards 4.1 Determination of Regional Imbalances 4.2 FFC Report and Regional Imbalances 4.3 Indicator and Backlog Committee Report and Regional Imbalances 4.4 Removal of Regional Imbalances 4.5 Increase in Regional Imbalances 4.6 Limitations of Methodology Adopted to Estimate Backlog 4.7 Regional Imbalances in Technical Education and Vocational Training 4.8 Employment in Services Controlled by the State Government in the three Regions 4.9 Role of Development Boards in the Identification of Regional Backlog 4.10 Summary 5. Planning, Resource Allocation and Regional Imbalance– The Role of Development Boards 5.1 Financial backlog of FFC Report 5.2 Pattern of Allocation and Expenditure for Removal of FFC Backlog 5.3 Backlog Clearance of FFC 5.4 Financial Backlog of IBC Report 5.5 Increase in Regional Backlog 5.6 Pattern of Allocation and Expenditure of Funds 5.7 IBC Backlog Removal i 5.8 Increase in Regional Backlog 5.9 Backlog Accumulation in Irrigation and Roads Sector 5.10 Reasons for Accumulation of Backlog 5.11 Role of Development Boards in Clearance of Backlog 5.12 Governor’s Directives and Compliance on Backlog Removal 5.13 Observations on Governor’s Directives 5.14 Role of Planning Department 5.15 Summary 6. Routine Functions of the Development Boards – An Assessment 6.1 Special Fund 6.1.1 District-wise Allocation of Special Fund 6.1.2 Sector wise Utilization of Special Fund 6.1.3 Perspective Plan for Utilization of Special Fund 6.1.4 Procedure Followed for the Works Under Special Fund 6.2 Assessing Impact of Various Development Efforts 6.2.1 Vidarbha Development Board 6.2.2 Marathwada Development Board 6.2.3 Rest of Maharashtra Development Board 6.3 Annual Reports and other Development Activities 6.3.1 Awareness Programmes 6.3.2 Physical and Financial Backlog Clearance 6.3.3 News Letters 6.3.4 State Planning Process 6.3.5 State Literacy Programme 6.3.6 Perspective Plan for the Most Backward Taluka in each Region 6.3.7 Involvement in Planning and Monitoring 6.3.8 Involvement of Development Boards in Sanctioning the Works Under Backlog Removal 6.3.9 Setting up of a Separate Department for Backlog Removal 6.3.10 Powers of Administrative Approval for Irrigation Projects 6.3.11 Constitution of New Indicators and Backlog Committee 6.3.12 Study on Backlog Seats in Medical Education 7. Performance of the Development Boards –Putting It All Together 7.1 Role of Development Boards 7.1.1 Identification of Regional Disparities by Development Boards 7.1.2 Suggestions by Development Boards for Removal of Regional Disparities 7.1.3 Impact of Special Fund on Regional Development 7.2 Development Impact on Major Sectors ANNEXURES PROJECT TEAM ii Preface Disparities in development across Marathwada, Rest of Maharashtra & Vidarbha of the State of Maharashtra have been a matter of socio-political concern for long. The issue of disparities as it has unfolded over the years, is concerned with unequal access to some key socio-economic infrastructure facilities across regions. Though the Government of Maharashtra had been allocating some plan funds since the mid –1980s to address the issue of regional disparities, yet the gaps in infrastructure availability across regions widened in some sectors during the greater part of 1980s & 1990s. Socio- political imperatives led to the formation of Statutory Development Boards in 1994 to articulate the issues relating to regional disparities and suggest strategies for their removal in a time bound manner for systematic follow-up actions. The Development Boards were constituted initially for a fixed term of 5 years in exercise of the powers of the President under Article 371(2) of the Constitution. The Governor assigned some special as well as routine functions to the Boards. The special functions included assessment of (i) sector-wise relative levels of development, (ii) impact of various development interventions and (iii) the levels of development expenditure in the three regions. The routine functions included utilizing a small development fund allocated to the Boards, conducting studies on various development interventions, organizing awareness generation programmes and submitting annual reports to the State Legislature. The Development Boards have been functioning for the last nine years as advisory bodies to the Governor. At the time of seeking extensions of the term of the Development Boards, the Government of Maharashtra submitted a fresh proposal for constitution of a separate Board for Konkan region which is currently a part of the Rest of Maharashtra region. At the instance of the Ministry of Home Affairs, Government of India, Programme Evaluation Organisation (PEO), Planning Commission undertook evaluation of the performance of the Statutory Boards of Maharashtra with reference to their assigned responsibilities and to examine if the objectives for which they were constituted have been fulfilled. To conduct the evaluation exercise, PEO relied on the various committee reports, representations made by the Boards, annual reports, impact study reports and secondary statistics on development parameters for the State of Maharashtra. Discussions with officials of the Development Boards, the Planning Department, the Governor’s Office and other government departments were also held to seek clarifications on various issues relating to the functioning of the Boards. The findings of the Study clearly indicate that not only did the Boards discharge their assigned functions and responsibilities reasonably well, but they also have brought about important changes in the planning process of Maharashtra for balanced regional development. This is, however, not meant iii to suggest that all positive changes were brought about by the Boards alone. The role played by the Governor’s Office as an arbiter and in directing the activities of the Boards towards constructive purposes has been a very critical input towards this achievement. Also, subjecting the activities of the Boards to normal administrative procedures has helped the Boards in discharging their responsibilities efficiently and objectively. Therefore, the purpose of constituting the Boards for moderating and defusing socio- political tensions arising out of unacceptably large gaps in the level of development across regions has, by and large, been fulfilled. Based on the detailed findings, an attempt has been made in this report to articulate the lessons keeping in view the possibility of their use in other States where large inter-regional development disparities may exist. A suggestion to re-define the role and functions of the Maharashtra Development Boards has been made to ensure usefulness of their services in the development process and bring about efficiency in use of public resources. The study received constant support and encouragement from Deputy Chairman, Planning Commission, Chairman (EAC) and Secretary, Planning Commission. At the initial stage of the study Ms. Nutan Raj and Dr. P.D. Joshi (both Directors, PEO) were involved in evaluation design and analysis of some committee reports. The study was, however, completed under the direction and supervision of Dr. S.M. Sirajuddin, Deputy Adviser, PEO. The present shape of the study was given under my overall supervision and guidance. Thanks are due to the staff members of the Headquarters and field staff of PEO and National Informatics Centre (NIC), Yojana Bhavan Unit for their help and assistance in the completion of the study. S.P. Pal Adviser (Evaluation) Dated: April, 2003 New Delhi iv Summary: Findings, Lessons & Suggestions Disparities in development across Marathwada, Rest of Maharashtra and Vidarbha regions of the State of Maharashtra have been a matter of socio-political concern since the beginning of the twentieth century. The issue of disparities, as it has unfolded over the years, is concerned primarily with unequal access to some key social and economic infrastructure facilities. The first systematic attempt to articulate the nature and extent of such disparities was made by the Fact Finding Committee (FFC), 1984. The Committee, among other things, worked out the gaps in infrastructure development vis-à-vis the State average in 29 sub-sectors in the three regions and the funds required to eliminate the backlog. According to FFC, the resource requirement for removal of existing backlogs was Rs.3187 crore (at 1982-83 prices) and the estimated regional shares were: 24% for Marathwada, 37% for Rest of Maharashtra and 39% for Vidarbha. Though, the Government of Maharashtra did not officially accept the recommendations of FFC (1984), some plan funds were being allocated each year for removal of infrastructure backlogs, in keeping with its overall findings. During 1985-1994, a sum of Rs. 3156 crore was spent. Taking into account the rates of inflation during this period, this amount was too small for removal of the (FFC) backlogs, and regional disparity remained a burning issue. Socio-political imperatives led to the formation of Statutory Development Boards in 1994 to take a fresh look at the issue of regional disparities and suggest strategies for their removal in a time-bound manner. The Boards were constituted initially for a fixed term of 5 years, in exercise of the power of the President under Article 371 (2) of the Constitution, following a Resolution of the State Legislature.
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