CHAPTER - I
INTRODUCTION
1.1 Introduction
Border Area Development Programme (BADP) had been started by the Department of Border Management, Ministry of Home Affairs, Government of India during VII Five Year Plan in Western Region of India. During the VIII FYP, the programme was extended to the States that had an international border with Bangladesh. During the IX FYP, the programme was further extended to the States having international border with Myanmar, China, Bhutan and Nepal. At present, BADP covers 362 blocks located along the international border in 96 border districts of 17 States that share an international land border with India‟s neighbouring countries.
1.2 Objectives of BADP
The main objective of the programme is to meet the special developmental needs of the people living in remote and inaccessible areas situated near the international border and to saturate the border areas with essential infrastructure through convergence of BADP/Central/State//Local schemes and through a participatory approach. The specific objectives of the programme are:-
• balanced development of sensitive border areas through adequate provision of infrastructure; and
• promotion of a sense of security amongst the local population.
1.3 Coverage of Border Area Development Programme
Punjab has 553 KM long international border with Pakistan that spread along 4 districts, viz.,Ferozepur, Gurdaspur, Amritsar and Tarn Taran (the last was created in April 2006). As many as 19 blocks in the State of Punjab (Attari block included in 2010-11), with an aggregate geographical area of 6369.82 Sq.km, are being covered under Border Area Development Programme (Table 1.1).
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Table 1.1: Coverage of Border Area Development Programme in Punjab
Name of Number of Name of Blocks Villages Population Area Border Length District Blocks covered (2001 Census) (Sq. km) (km)
Amritsar 3 Ajnala 360 3,94,429 1193.18 109.36 Attari Chogawan
Ferozepur 6 Fazilka 629 7,94,016 3066 246.21 Ferozepur Guru Harsahai Jalalabad Khuian Sarvar Mamdot
Gurdaspur 7 Bamial 733 5,86,239 1288.21 98.72 Dera Baba Nanak Dina Nagar Dorangla Kalanaur Narot Jaimal Singh Gurdaspur
Tarn Taran 3 Bhikhiwind 148 2,44,920 822.43 98.71 Gandiwind Valtoha
Total 19 - 1870 20,19,604 6369.82 553.00
Source: Annual Plan 2011-12, Govt. of Punjab
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1.4 Problems at Border Areas in Punjab
(i) The Border districts in Punjab have economically suffered a lot because of three wars with Pakistan during the post-independence era, long spells of cross- border terrorism and internal disturbances during the last quarter of the twentieth century. The border areas also lagged behind industrially as no heavy industry could come up due to their proximity to the international border with concomitant uncertainties and security threats.
(ii) Farmers living in border areas face acute hardships as they are barred from cultivating tall crops like sugarcane, cotton, etc. which would earn them better income. The problems are compounded owing to inadequate access to their farm lands and restricted movements at „zero line‟ due to trans-border illicit activities like drug trafficking, smuggling, illegal crossing, etc. and erection of fencing along the international border.
(iii) Rivers Ravi and Satluj and their tributaries and distributaries pass through the border Districts of Punjab causing damage to the crops particularly during the Rabi season. These rivers and rivulets also create restricted surface transport and communication in the border areas.
(iv) Border areas lag behind in basic amenities of education, health, sanitation, potable drinking water, transportation, roads, etc. The lack of environment for development of industries and marketing infrastructure has further accentuated the difficulties of the people in the border areas.
1.5 Funding of BADP
The Border Area Development Programme is a 100% centrally funded Area Programme. Funds are provided to the States as Special Central Assistance for execution of the approved schemes on a 100% grant basis and allocated amongst the 17 beneficiary States on the basis of –
(i) length of international border; (ii) population of border blocks; and (iii) area of border blocks.
Each of these criteria is given equal weightage. The distribution of BADP fund among districts and blocks is generally done as per methodology given in Annexure I.
The border block is the spatial unit for the programme and all schemes are implemented within the border blocks only. The funds received from Govt. of
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India are allocated among the 6 border districts of Punjab on the basis of the criteria adopted by Govt. of India for distribution of funds amongst eligible States.
Funds are generally released to States in two installments – the first installment of 90% is released on receipt of the schemes approved for the year by the State Level Screening Committee and the balance 10% is released when 70% of the funds released during the preceding year have been utilized.
1.6 Activities / Areas covered under BADP
The broad guidelines of the scheme have indicated an illustrative list of eligible and ineligible activities for consideration under BADP. Major sectors considered for support under BADP scheme are Education, Health, Agriculture, Infrastructure, Social Sector and Miscellaneous Activities, a list of which is indicated in Box 1.1.
Box 1.1 – Broad Activities Eligible for Grants under BADP Scheme
Education: school building, hostels, library, playground
Health: Building, basic equipment like X-Ray, ECG machines, equipment for dental clinic, pathological labs, etc.
Agriculture: Construction of pucca irrigation channels (khals), lift irrigation, animal husbandry, dairying, pisciculture, social forestry, soil conservation, etc.
Infrastructure: Construction / improvement of roads, approach roads, provision of civic amenities like electricity, water, pathways, foot bridges, rural toilets, bus stands, solar street lights, etc.
Social Sector: Community halls, Anganwadis Centres, common shelter Centres, etc.
Miscellaneous: Development of Model villages, E-chaupals/agri shops/mobile media vans/market yards, and cluster approach wherever feasible.
1.7 Progress under BADP during 2007-08
During 2007-08, an amount of Rs.1870 lakh was sanctioned under normal BADP schemes and the entire amount was released by 31.3.2009. As per the distribution of funds, as can be seen from Table 1.2, Amritsar had received Rs. 257.53 lakh (14 %), Ferozepur district Rs.839.03 lakh (45%), Gurdaspur District Rs.427.72 lakh (23%) and Tarn Taran District Rs.345.72 lakh (18%).
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Table 1.2: District-wise Allocation of BADP Fund in Punjab during 2007-08
(Rs. in lakh)
Sl. District Funds Funds Utilized Percentage No. Sanctioned Up to 31/03/2009 Utilization
1 Amritsar 257.53 (14) 257.53 100 2 Ferozepur 839.03 (45) 839.03 100 3 Gurdaspur 427.72(23) 427.72 100 4 Tarn Taran 345.72(18) 345.72 100 Total 1870.00 (100) 1870.00 100
NB: Figures in Brackets indicate percentages. Source: Annual Plan 2011-12, Govt. of Punjab.
1.8 Progress under BADP during 2008-09
During 2008-09, an amount Rs.2218.00 lakh was allocated among the four districts in the same proportion as was done in the previous year. The detail of funds sanctioned under normal BADP schemes during 2008-09 is given Table 1.3.
Table 1.3: District-wise Allocation of BADP Fund in Punjab during 2008-09
(Rs. in lakh)
SN District Funds Funds Utilized Percentage Sanctioned Up to 31/03/2010 Utilization
1 Amritsar 305.46 (14) 305.46 100 2 Ferozepur 995.16(45) 995.16 100 3 Gurdaspur 507.32(23) 507.32 100 4 Tarn Taran 410.06(18) 410.06 100 Total 2218.00(100) 2218.00 100
Figures in Brackets indicate percentages. Source: Annual Plan 2011-12, Govt. of Punjab
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CHAPTER - II
Objectives and Methodology
2.1 This chapter presents the major objectives of the study, nature of data collected and approach and methodology followed for the conduct of study.
Objectives of the Study
The Planning Department, Govt. of Punjab has assigned the study to NABCONS for verification and evaluation of the infrastructure created under BADP grant assistance, particularly in Tarn Taran district of Punjab (Map 2.1). Tarn Taran is one of the four districts where BADP scheme is under implementation in Punjab.
Map 2.1: Tarn Taran District in Punjab
Approach and Methodology of Study
(i) Sampling Method and Sample Size
The verification and evaluation of projects were conducted on a sample verification and evaluation approach where representative samples were selected from each broad sector of activities where BADP grant was utilized. The stratified random approach was adopted to select the sample projects.
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BADP is being implemented in three border blocks of Tarn Taran district and all the three blocks had been covered in the study with sample projects from each.
As per the terms of reference of the study, the sample projects were selected from the projects sanctioned during 2007-08 and 2008-09 only. It was also appropriate to study the infrastructure created during these two years as there is invariably some time lag between construction and generation and delivery of the intended benefits and this time-lag has to be allowed to lapse to make an appropriate verification and evaluation of its impacts.
While selecting the sample projects, care had been taken: to select most appropriate and representative sample projects, to cover all broad sectors and almost every sub-sector in each sector, to cover all dimensions of projects like low cost as well high cost projects, and to cover the entire spread of the projects like every block and from villages at „zero point‟ to interior villages.
The activity wise distribution of sample projects of the study is given in Table 2.1. 73 sample projects (32% of total projects) had been randomly selected from the major sectors including 50 (29%) projects sanctioned during 2007-08 and 23 (40%) projects sanctioned during 2008-09. Sample projects consists of 8 projects under Education, 1 under Health, 10 Agriculture, 46 Infrastructure, 3 Social & 5 Security and Miscellaneous (due to large agricultural land being across the fence, development of projects for BOP had been covered under security.)
The sample projects included varieties of activities under each sector - construction of classrooms, laboratories, library, compound walls, etc. under education sector, construction of community centre, Dharmshals, etc. under social sector, construction of sewerage, etc. under agriculture, construction of metalled road, brick-packed approach road, installation of solar lights, etc. under infrastructure and construction of new dispensaries buildings, etc. under health sector.
Table 2.1: Activity wise Distribution of Sample Projects
Sector 2007-08 2008-09 Total Total Sample Total Sample Total Sample Projects Projects Projects Projects Projects Projects Education 9 6 (67) 7 2(29) 16 8(50) Health 1 1(100) 1 1(100) Agriculture 25 9(36) 6 1(17) 31 10(32) Infrastructure 124 32(26) 37 14(38) 161 46(29) Social 12 3(25) 0 12 3(25) Security 6 5(83) 6 5(83) Total 170 50 (29) 57 23(40) 227 73(32) Figures in brackets indicate percentage to respective totals.
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Out of the randomly selected 50 samples of the BADP projects sanctioned during 2007-08, 64% pertained to infrastructure sector, 12% to education, 18% to agricultural & 6% to social. (Figure 2.1). From the sample projects financed during 2008-09, 61% are from infrastructure, 22 % security, 9% social, 4 % health & 4 % from Agricultural projects (Figure 2.2). The representation of the sample projects is commensurate with the absolute distribution of projects.
Figures 2.1 & 2.2 Percentage distribution of Sample projects sanctioned during 2007-08 & 2008-09
Activity Wise 2007-08 Activity Wise 2008-09 6% Education 61% Education 64% Health 0 Health 12% Agriculture Agriculture Infrastructure infrastructure 22% Social 0% Social 9% 4% Security 4% Security 0%
Block-wise distribution of sample projects, as given in Table 2.2, reveals that a sample size of 19 projects was selected from Bhikhiwind Block, 25 projects from Gandiwind Block and 29 from Valtoha Block. The block-wise distribution of projects has been made based on the number of projects sanctioned in the block.
Table 2.2: Blockwise Distribution of Sample Projects
Blocks 2007-08 2008-09 Total Total Sample Total Sample Total Sample Projects Projects Projects Projects Projects Projects Bhikhiwind 41 12 (29) 11 7 (64) 52 19 (37) Gandiwind 36 15 (42) 35 10 (29) 71 25 (35) Valtoha 93 23(25) 11 6(55) 104 29(28) Total 170 50 (29) 57 23 (40) 227 73 (32)
Care had been taken to select proportionately representative sample projects across various activities as well as across blocks. Figure 2.3 and Figure 2.4 show the pattern of selection of sample projects across different blocks from among the projects sanctioned under BADP during 2007-08 and 2008-09 respectively.
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Figure 2.3: Total Projects and Sample Projects financed during 2007-08
100
80
60 Total Projects 40 Sample Projects 20
0 Bhikhiwind Gandiwind Valtoha
Figure 2.4: Total Projects and Sample Projects Financed during 2008-09
40 35 30 25 20 Total Projects 15 Sample Projects 10 5 0 Bhikhiwind Gandiwind Valtoha
As far as financial coverage of the sample projects is concerned, the sample projects represent 40% of the total grant sanctioned and released during 2007-08 and 57% of the grant sanctioned and disbursed during 2008-09, making a total representation of 50% of the grants sanctioned during the two years Activity-wise financial representation of the sample projects is given in Table 2.3.
Table 2.3: Financial Coverage of Sample Projects
Sector 2007-08 2008-09 Total Total Sample Total Sample Total Sample Projects Projects Projects Projects Projects Projects Education 17.45 13.30(76) 17.37 10.00(58) 34.82 23.30(67) Health 0 0 4.00 4.00(100) 4.00 4.00(100) Agriculture 55.09 22.33(41) 32.00 5.00(16) 87.09 27.33(31) Infrastructure 237.53 95.14(40) 138.19 193.98(30) 555.72 289.12(52) Social 35.65 9.06(25) 0 0 35.65 9.06(25) Security 0 0 38.50 20.50(56) 38.50 21.50(56) Total 345.72 139.83(40) 410.06 234.48(57) 755.78 374.31(50)
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As can be seen from Figure 2.5 and 2.6, the sample projects represent an adequate proportion of the total grant released under BADP in the border district of Tarn Taran to enable drawing of conclusive inferences. Figure 2.5
Financial Representation of Total Projects and Sample Projects from 2007-08
160 140 120 100 Total Amount 80 Sample Project Amount 60 40 20 0 Bhikhiwind Gandiwind Valtoha
Figure 2.6
Financial Representation of Total Projects and Sample Projects from 2008-09
180 160 140 120 100 Total Amount 80 Sample Project Amount 60 40 20 0 Bhikhiwind Gandiwind Valtoha
Collection of Data
Both primary and secondary data had been collected on the progress and implementation aspects of the BADP scheme in Tarn Taran district. Secondary data had been collected from the published / recorded statements and documents at the Office of District Planning Board, Amritsar, Annual Plan 2011-12 document of Punjab and websites like www.pbplanning.gov.in. Primary data had been collected
10 for each of the selected projects through onsite visit to the project by the study team. Information were collected on a pre-designed schedule (Annexure 2.2) from the implementing agency/department, Sarpanch of the village, Teachers, Doctors, Farmers, beneficiary villagers, etc.
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Chapter III
Implementation of BADP Scheme
3.1 Distribution of Projects
3.1.1 Activity wise Distribution of Projects
BADP grant was utilized to develop various infrastructures under six broad sectors, viz., Education, Health, Agriculture, Infrastructure, Social and Security sectors. During 2007-08, BADP grant of Rs.345.72 lakh was allocated of which, 69% was utilized in infrastructure sector where as Agriculture sector received 16%, Social sector 10% and Education 5% . There was no significant change during 2008-09 as can be seen from Table 3.1. Agriculture sector accounted for only 8% of the BADP fund during 2008-09 whereas infrastructure sector accounted for 78%. It was observed that important sector of Health received only 1% and that too only in 2008-09.
Table 3.1 : Activity wise Distribution of BADP Scheme in Tarn Taran District
Sector 2007-08 2008-09 No of % Amt % No of % Amt % Projects Projects Education 9 5 17.45 5 7 12 17.37 4 Health 0 0 0 0 1 2 4.00 1 Agriculture 25 15 55.09 16 6 11 32.00 8 Infrastructure 124 73 237.53 69 37 64 318.19 78 Social 12 7 35.65 10 0 0 0 0 Security 0 0 0 0 6 11 38.50 9 Total 170 100 345.72 100 57 100 410.06 100
Figure 3.1 and 3.2 portray the distribution of BADP projects across six broad activities sanctioned during 2007-08 and 2008-09. As can be seen from the figures, maximum number of projects (73% in 2007-08 & 64% in 2008-09) were sanctioned under infrastructure which includes construction of roads, approach roads, link roads, drinking water supply, etc. These infrastructures have enhanced connectivity in the border villages and to the Border Out Posts that facilitated maintaining security in the border area against cross border illicit trafficking of drugs and cross-border terrorisms. However, Agricultural, Health & Social sectors received negligible amount in BADP programme of Tarn Taran district.
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Figure 3.1: Sector-wise Distribution of BADP Figure 3.2: Sector-wise Distribution of BADP projects sanctioned during 2007-08 projects sanctioned during 2008-09
. . 4% 6% 0% 0% Education 11% 12% Education 11% 0% 2% Health Health 10% Agriculture Agriculture 65% Infrastructure 79% Infrastructure Social Social Security Security
3.1.2. Blockwise Distribution of Projects
The BADP scheme is being implemented in three blocks of Tarn Taran district. Bhikhiwind block got 25% and 26% , Gandiwind received 34% and 33% whereas Valtoha block got 41% and 41% of the total allocation in the district during 2007-08 and 2008-09 respectively. Block-wise distribution of BADP fund during 2007-08 and 2008-09 is given in Table 3.2. The allocation of grants among the blocks is done based on border length and population and the development in border areas among the blocks.
Table 3.2 :Block-wise Distribution of BADP Scheme in Tarn Taran District
Blocks 2007-08 2008-09
No. of % Amount % No. of % Amount % Projects Projects Bhikhiwind 41 24 87.34 25 11 19 103.6 26 Gandiwind 36 21 115.67 34 35 62 137.19 33 Valtoha 93 55 142.71 41 11 19 169.27 41 Total 170 100 345.72 100 57 100 410.06 100
Figure 3.3: Block-wise Distribution of BADP projects sanctioned during 2007-08
.
Bhikhiwind 24% Bhikhiwind Gandiwind Valtoha Valtoha 55% Gandiwind 21%
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Figure 3.4: Block-wise Distribution of BADP projects sanctioned during 2008-09
. Valtoha 19% Bhikhiwind 19%
Bhikhiwind Gandiwind Gandiwind 62% Valtoha
3.2 Implementation of Projects
BPDP scheme is implemented mainly through Block Development and Panchayat Officer (BDPO) of the respective Block. The BDPO acts as the nodal agency for implementation of the scheme at the block level. Various executive agencies and their functioning in the Tarn Taran District (Bhikhwind, Gandiwind & Valtoha blocks) are discussed below.
3.2.1 Gram Panchayat
Sarpanch, Gram Panchayat generally executes projects of the lesser cost (less than Rs.10.00 lakh) pertaining to the respective village. These projects are generally executed departmentally without inviting tenders. The Junior Engineer, Panchayat Raj provides the technical support and prepares technical documents like design, estimate and MB (measurement book) while the Panchayat Secretary and BDPO provide the administrative control. Although the cost is generally less as compared to the projects carried out by other agencies, the quality and standard of maintenance and repair was found to be poor. The participation of the local people was the maximum. As the projects were of minor nature, no identification board, etc. were placed on the ground. The people generally were not aware of BADP and it was taken as if the funds were provided by the State / local Govt.
3.2.2 EOPS (Executive Officer Panchayat Samiti)
Certain projects pertaining to more than one village or where due to certain reasons, the Gram Panchayat Sarpanch was not functional, were carried out by the EOPS (BDPO). The JE, Panchayat Raj provides the technical support. The projects are generally carried out through tendering. The work at BOP ( Border and Post) comes under this category. Other parameters are generally as that of projects carried by the Gram Panchayat.
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3.2.3 Executive Engineer PWD (B and R)
In general, construction of all the major projects of roads had been implemented by the Executive Engineer, PWD in Valtoha Block through tendering. The quality of construction as also that of maintenance and repair was comparatively better. The projects were well identified on ground with proper boards. Proper records were available as regards maintenance indicating purpose, amount and funding and details of the executing agencies. These projects could be monitored well.
3.2.4 Executive Engineer, Panchayat Raj
All the major projects in Gandiwind Block had been carried out by the Executive Engineer, Panchayat Raj, Tarn Taran. The projects had been carried through tendering. The quality of construction as also that of maintenance and repair was satisfactory.
3.2.5 Executive Engineer Punjab Mandi Board Tarn Taran
All major projects generally construction of roads had been carried out by the Executive Engineer Punjab Mandi Board in Bhihkiwind Block. The project had been carried out through tendering. The quality, standard of maintenance & repair is comparatively better. The projects are well identified on ground, proper boards are erected, maintenance indicating purpose, amount and funding and executing agencies, Proper records is available, and the projects are well monitored.
3.3 Monitoring
The district planning Board is the nodal department for monitoring of the schemes at the district level. The monitoring at the block & district level had been carried out and was found to be satisfactory. The technical monitoring & quality control had been carried out by the Executive Engineer of PWD (B&R), Executive Engineer, Punjab Mandi Board & Panchayati Raj and the findings were satisfactory. The monitoring of the projects carried out by the SGP/EOPS is done by the BDPO of the concerned block.
3.4. Sector-wise Implementation
3.4.1 Education Sector
Under Education Sector, BADP grant had been utilized for 16 projects in the district during 2007-08 and 2008-09. It had been used for construction of classrooms, science laboratory, compound wall, cement/brick pavement approach road inside the school premises and repair of existing school buildings. The new infrastructure facilitated the schools to hold classrooms and deliver better education facilities to the students. However, it was observed that an aggregate grant of Rs.7.00 lakh (varying from Rs.1 to Rs.2 lakh to each school) was
15 distributed to 5 schools during 2007-08 in Valtoha block. However, grant of Rs.1 lakh to Rs.2 lakh is grossly inadequate to create any worthwhile asset and the amount can at best be used only for repair/ renovation of the existing buildings.
Elementary School at Village: Elementary School at Village: Tathi Rasalpur Jamal Singh
Elementary School at Village Assal Uttar Elementary School at Village Shakargarh 3.4.2 Health Sector
Primary Health Care should be one of the top priority sectors. However, only one project involving construction of dispensary at village Cheema Kalan in Gandiwind block during 2008-09 had been executed. It was noticed that since the project was incomplete, it and was not handed over to the concerned department for actual use. Proper use of the infrastructure created under health sector shall definitely generate more benefit for the people in the locality. It is recommended that more health projects like dispensary and hospitals should be planned and executed in remote areas located close to the IB.
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Civil Dispensary at Village: : Cheema Civil Dispensary at Village: Cheema Kalan Kalan
3.4.3 Agriculture& Allied Sector
Agriculture is the mainstay of the people of border area as industries are not coming up there because of inadequate forward and backward linkages. Agricultural marketing infrastructure, storage facilities and irrigation support should be the most preferred infrastructure in this region. However, it was observed that most of the 31 projects executed during 2007-08 &2008-09 pertained to desilting of ponds in villages and construction of public drainage/ retaining walls which did not contribute in any way the development of agriculture sector.
3.4.4 Infrastructure Sector
Among all sectors, infrastructure sector had received the maximum amount of BADP funds during both years. The major activities covered under infrastructure are roads (metalled, cement concrete flooring, brick-paved, etc.), solar streetlights, culverts, etc.
Rural roads have claimed a large chunk of the funds flow under BADP scheme. These roads have certainly established all-weather, safe communication and surface transport facilities in rural areas along the border. It has also led to the villages getting connected to market centers which, in turn, facilitated easier sale of
17 farm produce by the farmers. The roads benefited small farmers who were using animal-driven carts for transport of agricultural goods. Tractors and harvesters could reach the farmland easily at many places because of the rural roads developed under BADP. Moreover, the road network facilitated and enhanced mobility of Security Forces in border areas prohibiting illicit trafficking of drugs and smuggling and cross-border infiltration.
Solar street lights are another useful infrastructure created under BADP scheme. The villages in rural areas generally have no provision of streetlights. Darkness in night not only creates difficulties for the villagers in their daily lives but also facilitates illegal cross-border trafficking. Therefore, provision of streetlights with solar PV facilities has benefited the people in border areas.
3.4.5 Social Sector
The social infrastructure created with BADP support are mainly community centers, rural sanitation (toilets) and aganwaries centers (crèches). The Community centers had benefitted a large local population in organizing community & other functions. The construction of aganwaries had benefitted large number of people from poor and backward classes for giving preliminary education and nourishment to their children. The provision of toilets for villagers from backward classes had helped them in improving their health and sanitation.
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3.4.6 Security Sector
6 projects in Tarn Taran district under this sector had been executed during 2008- 09. The projects were brick-paved tracks from the connecting road network to BOP & within the premises. This had helped BSF personnel carry out their duties efficiently. Besides, it had also benefitted the farmers who could now carry their produce direct from field to anaj mandis for better price realization.
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CHAPTER- IV OBSERVATIONS AND RECOMMENDATIONS
4.1 General Observations
4.1.1 Design & Technical Specifications
BADP grant was allocated to projects without any proper pre-assessment of costs and any approved design of structures to be erected. The grant assistance was mostly sanctioned to each project as a lump sum without any estimate and plan of work to be executed. The allocated amount sometimes fell short to complete the project. Further, in the absence of an approved design, the executing agency tended to create a large sized or best possible asset and this often led to shortage of funds and made it difficult to complete the concerned project. For example, dispensaries constructed at village Kamalpur & Thoba were not yet fully functional owing to fund shortage. Therefore, while sanctioning a project, it may be ensured that the it has an appropriate design and the grant amount is sanctioned based on the estimates at approved rates for the infrastructure activity so that no project remains incomplete.
4.1.2 Constraints of Space for Physical Infrastructure
Lack of appropriate public space in village or under the Gram Panchayat often acts as a hindrance for execution of the sanctioned projects. For instance, it was observed during site visit that construction of a primary school room under Education Sector with a cost of Rs.2.00 lakh was sanctioned while the actually, the funds were utilized for constructing a brick-paved track. Diversion of funds for other activities, though allowed, is a cumbersome and time-taking process. Thus, while sanctioning a project, it may be ensured that appropriate site is available for construction of an infrastructure.
4.1.3 Need-based Projects
BADP grants may be considered only for need-based activities/projects. There were many projects that seemed to be redundant which could have been skipped. It was gathered that such projects were constructed only because funds were made available under BADP and not because the constructed infrastructure was need- based. The utility of such projects is usually very minimum. Thus, while considering a project, the utility aspect of it may be assessed and priority may be given to a projects with higher utility or benefit over those with lower utility.
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4.1.4 Handing over the Infrastructure to User Agency
It was observed during onsite inspection that certain projects were not handed over to appropriate authorities upon completion for the latter‟s use. For instance, a dispensary constructed at village Cheema Kalan in Gandiwind block during 2008- 09 was not handed over to the concerned Department. Therefore, it is suggested that projects must be handed over to the user agency within a stipulated period, say within a month or so from the date of completion.
4.1.5 Appropriate Space and Location for Infrastructure
Every project was given a time limit for its completion. However, during the on- site inspection, it was observed that many projects were not completed in time for various reasons like shortage of funds, lack of appropriate site/space, Panchayat elections and change of executing Sarpanch or even without any justified reason. Lack of onsite verification during construction and adequate monitoring by the nodal department may be one of the major factors responsible for delay in completion. A district level Monitoring Committee may physically inspect the progress of projects, at least in 20% cases. A penalty clause for inordinate delays in implementing the project without any justified reasons may be introduced, especially in case of large projects.
4.1.6 Quality Control
It was noticed that only 2 or 3 JEs (Junior Engineers) were available in each block to provide technical support which is considered inadequate to supervise all the works being carried out in the block. It is recommended that more hands that are technical should be available at village & block level to maintain quality standards.
4.1.7 Need for Quick Asset Operationalization
District-level monitoring Committee may periodically verify the uses of the assets created under BADP scheme. A close monitoring would reveal that there were projects that were completed but were yet to be put in to appropriate uses. District Administration may take necessary action to fruitfully use the infrastructure created. It is self-evident that infrastructure left unused not only damages the assets but also restricts the benefit flow of such assets to the general public.
4.1.8 Timely Release of Grant Assistance
BADP grant is made available to executing agencies only towards the end of the year, in the month of November / December. This delays completion of projects and submission of Utilization Certificate (UC). Unless UC is submitted, grant for the next year is also not made available and the cycle of delay continues. In order to execute the projects on time, the grant may be released by July so that the projects would be completed and UC would be submitted by the end of March every year.
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4.1.9 Maintenance & Running Cost
No provision had been made for repair and maintenance of the projects. The implementing agency (Gram Panchayat) generally had no funds for day-to-day running of these projects; consequently, most of these assets had remained underutilized. The funds allotted for each project under BADP had been fully utilized & the provision of keeping 15% for maintenance, as laid down in the BADP Guidelines, had not been used. It is recommended that adequate funds should be generated / made available to run these projects.
4.1.10 Monitoring
The District Planning Board is the nodal department for monitoring of the schemes at the district level. The Executive Engineer of PWD (B&R), Executive Engineer Punjab Mandi Board & Panchayat Raj, had carried out the technical monitoring and quality control. Monitoring of the projects carried out by the SGP/EOPS are done by the BDPO of the concerned block at the block levels. The monitoring at the block and district level had been carried out as required and found to be satisfactory.
4.1.11 Proximity to International Border (IB)
As per the BADP guidelines, the villages located closer to border should be given priority while the dislocated villages should be assigned the top priority. This was found to be well complied with. A total of 227 projects with an aggregate cost of Rs.345.72 lakhs were sanctioned and executed during 2007-08 and it was observed that most of the projects were located in remote areas close to IB.
4.1.12 Convergence of Centrally-sponsored Schemes
It was noticed that the principle of convergence of centrally/state sponsored schemes had been largely followed. For example, under Education Sector, BADP funds had been utilized to argument/fill in the gap in the existing infrastructure in respect of all the 8 projects to make it more useful to the public. Similarly, all the road projects under BADP were either approach road to a particular destination from the existing road or the missing link to connect the existing roads to make it a “through road”.
4.1.13 Identification of Projects on Ground
Most of the projects undertaken with BADP grant support like construction of brick-paved street/ drain or nallah, could not be identified clearly on the ground as no signboard or any other landmark indicating the start and end of a particular project was available at the site. Moreover, since similar types of projects had been executed under different schemes along with these projects, it was not possible to differentiate and identify the exact location and details of these projects. However, the projects had been verified with the available records. It is recommended that proper boards displaying the fact of the project having been constructed with
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BADP grant support, together with the associated details, may be installed at a suitable location at the project site.
4.1.14 Priority Areas
Activities like veterinary services, health infrastructure, irrigation, drinking water, solar streetlights, etc. may be given higher allocation of BADP grant.
4.1.15 MIS (Management Information System)
It was observed that data pertaining to BADP were available at District and Block level. However, MIS at the village levels, as prescribed in the BADP Guidelines, was not found to be operational.
4.2 Observations / Recommendations in respect of BADP 2007-08
4.2.1 Allotment of Funds
Activity/Sector wise: Out of Rs. 345.72 lakhs allotted to Tarn Taran District, Rs. 87.34 lakh, Rs.115.67 lakh & Rs.142.71 lakh were allotted to Bhikhiwind, Gandiwind & Valtoha blocks respectively.
Bhikhiwind Block: Rs.4.50 lakh, Rs.7.76 lakh, Rs.5.48 lakh and Rs.23.65 lakh were allotted to education, agricultural, infrastructure and social sectors respectively. However, no funds were allotted to health & security sectors.
Gandiwind Block: Rs.5.00 lakh, Rs.20.00 lakh, Rs.89.17 lakh and Rs.1.5 lakh were allotted to education, agricultural, infrastructure and social sectors respectively. However, no funds were allotted to health & security sectors.
Valtoha Block: Rs.7.00 lakh, Rs.27.33 lakh, Rs. 97.88 lakh & Rs.10.50 lakh were allotted to education, agricultural, infrastructure, & social sectors respectively. However, no funds were allotted to health & security sectors.
It is observed from the above that infrastructure sector had an aggregate allocated amount of Rs.237.53 lakh (69%) in the District, which was the highest as compared to other sectors. No funds were allotted to health & security sectors. It is, therefore, recommended that more funds may be given to education, security, health & social sectors.
4.2.2 Non-Permissible Schemes
Although most of the projects carried out were found to be permissible as per the guidelines, there were some that were not. For example, a number of projects like desilting of ponds in villages, tows & cities (7 projects in Gandiwind Block, 4 projects in Bhikhiwind Block & 12 in Valtoha Block), drains & gutters (6 projects in Gandiwind Block, 5 in Bhikhiwind Block & 8 in Valtoha block) and construction of cremation sheds (under “Repair & Maintenance” work of any type
23 other than special repairs for restoration/upgradation of any asset) had been constructed under Agriculture and Infrastructure sectors that were not permissible under the BADP guidelines.
4.2.3 Diversion/Change of Project
It was observed from the sanctioned list during site visit that construction of primary school room under Education Sector, costing Rs.2.00 lakh, was to be undertaken. However, it was found that a brick pavement track had been constructed instead. This would need to be regularized.
4.3 Observations and Recommendations in respect of BADP 2008-09
4.3.1 Allotment of Funds
Activity/ Sector-wise: Out of Rs.410.06 lakh allotted to Tarn Taran District, Rs.137.19 lakh, Rs.137.19 lakh and Rs.169.27 lakh were allotted to Bhikhiwind, Gandiwind, & Valtoha Blocks respectively.
Bhikhiwind Block: Rs.4.62 lakh, Rs.91.48 lakh and Rs.7.50 lakh were allotted to education, infrastructure and security sectors respectively. However, no funds were allotted to health, agricultural and social sectors
Gandiwind block: Rs.12.75 lakh, Rs.4.00 lakh, Rs.32.00 lakhs, Rs.74.44 lakh and Rs.14.00 lakh were allotted to education, health, agricultural, infrastructure and security sectors respectively. However, no funds were allotted to social sector.
Valtoha Block: Rs.152.27 lakh and Rs.17.00. lakh were allotted to infrastructure, and security sectors respectively. However, no funds were allotted to education, health, agriculture and social sectors.
It is observed from the above that-
(i) Infrastructure sector had an aggregate allocated amount of Rs.318.19 lakh (78%) in the District, which was the highest as compared to other sectors. No funds were allotted to social sector. It is, therefore, recommended that more funds may be allocated to priority areas like irrigation, agriculture infrastructure, health, education and social sectors.
(ii) As per the sanctioned list, construction of strengthening & widening of bitumen road from Kalra Market to BOP Khalra under Security Sector, with a costing Rs.3.00 lakh, was to be undertaken. However, instead, a brick-paved track was constructed. Such non-sanctioned diversion of funds may be regularized.
(iii) A number of projects like public drainage/retaining wall (6 projects in Gandiwind Block ) had been constructed under Agricultural sector which are not permissible under BADP guidelines.
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ANEXURE I
Methodology of distribution of outlay among border districts and border blocks
Let,
(i) Total Population = P1, Population of district P1 D1 & Population of Block P1 B1
(ii) Total Area = P2, Area of District=P1 D2 & Area of Block = P2 B2
(iii) Total Length of International Border = P3,
Length of international border of district = P3 D3,
Length of International Border of Block = P3 B3
Step 1 :- Divide the total allocation equally among P1, P2 and P3
Step 2 :- Funds allocated above this basis be F1, F2 & F3
Step 3 :- For distribution among district
(a) One the basis of Population = P1 D1 x F1 = A P1
(b) On the basis of Area = P2 D2 x F2 = B P1
( c ) On the basis of Length = P3 D1 x F3 = C P3
(d) Total allocation of the District (D) = A + B + C
Step 4 For distribution among Blocks
Total allocation of the District (B) = P1 B1 x A + P2 B2 x B + P3 B3 x C P1 D1 P2 D2 P3 D3
Source: Annual Plan 2011-12, Govt. of Punjab
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ANNEXURE 2.2
Inspection /Evaluation of BADP Projects in Tarn Taran District of Punjab undertaken by NABCONS
Sl. No. Date of Field visit: ___
Name of the Work:- 1. Project Details
Location of project a. Brief description of works b. Implementing Department / Agency (PWD / Panchayat/RWD/ Industries, Others - Pl. specify) c. Name with designation of the officer presently in charge d. Type of project (Road, Building, Bridge, Agriculture, Power supply,
Drinking water, Sanitation, Education, etc.)
2. Project Particulars - Physical a. Date of Commencement b. Date of Completion c. Target for completion by d. Delay in Completion, if any e. Reasons for delay, if any f. No. of villages/towns benefited g. Names of the benefiting villages/ towns:
h. Total population benefited
27 i. Nature of benefits/Impact (cropping pattern change, drudgery reduction, health, education, sanitation, distance reduction, marketing, etc.) 3. Project Particulars - Financial a. Date of sanction b. Sanctioned Cost of the Work c. Technical approval Date Amount d. Administrative approval Date Amount e. Execution of work (tendering/work order/department) f. Expenditure incurred g. Reasons for variation in cost, if
any 4. Status of Project a. Whether completed in all respect b. Utilisation certificate submitted c. Present condition of the work d. Monitoring/Inspection Carried out by department/agency e. Any other information/comments
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5. OTHER INFORMATION:
Constraints in implementation, if any
Factors/difficulties hampering full realization of intended benefits, if any Deviation in implementation of planned work, if any?
Quality of assets
Maintenance of assets
Usage of assets
User fee, if any
People‟s view about the project
Areas of concerns, if any
Suggestions, if any
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PART - II
PROFILE OF SAMPLE PROJECTS
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