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C.S. (H.A.)-394

PARLIAMENT OF INDIA RAJYA SABHA

DEPARTMENT-RELATED PARLIAMENTARY STANDING COMMITTEE ON HOME AFFAIRS

TWO HUNDRED FIRST REPORT

Demands for Grants (2017-18)

Ministry of Home Affairs

(Presented to the Rajya Sabha on 15th March, 2017) (Laid on the Table of Lok Sabha on 15th March, 2017)

Rajya Sabha Secretariat, New Delhi March, 2017/Phalguna, 1939 (Saka)

CONTENTS

PAGES

1. COMPOSITION OF THE COMMITTEE...... (i)-(ii)

2. INTRODUCTION ...... (iii)

3. ACRONYMS...... (iv)-(vi)

4. REPORT...... 1-17

CHAPTER-I : Overview...... 1-4

CHAPTER II : Overall Assessment of Demands for Grants...... 5-10

CHAPTER III: MHA (Demand No. 46) and Cabinet (Demand No. 47)...... 11-24

CHAPTER IV : Police (Demand No. 48)...... 25-49

CHAPTER V : Union Territories (Demand Nos. 49 to 55)...... 50-59

CHAPTER VI : Other Issues...... 60-71

5. RECOMMENDATIONS/OBSERVATIONS — AT A GLANCE ...... 72-87

6. MINUTES...... 89-101

7. ANNEXURES...... 103-128

COMPOSITION OF THE COMMITTEE

(Re-constituted w.e.f. 1st September, 2016)

1. Shri P. Chidambaram — Chairman

RAJYA SABHA

2. Shri K. Rahman Khan

3. Dr. V. Maitreyan

4. Shri Shamsher Singh Manhas

5. Shri Majeed Memon

6. Shri Bhaskar Rao Nekkanti

7. Shri Derek O'Brien

8. Shri Neeraj Shekhar

9. Shri R.K. Sinha

10. Shri Sitaram Yechury

LOK SABHA

11. Shri Prem Singh Chandumajra

12. Shri S. Selvakumara Chinayan

13. Shri Adhir Ranjan Chowdhury

14. Dr. (Smt.) Kakoli Ghosh Dastidar

15. Shri Ramen Deka

16. Shri Prataprao Jadhav

17. Shri Mallikarjun Kharge

18. Shrimati Kirron Kher

19. Shri Kaushal Kishore

20. Shri Ashwini Kumar

21. Shri P. Nagarajan

22. Shri Kinjarapu Ram Mohan Naidu

23. Shri Baijayant "Jay" Panda

(i) 24. Shri Dilip Patel

25. Shri Lalubhai Babubhai Patel

26. Shri Natubhai Gomanbhai Patel

27. Shri Bheemarao B. Patil

28. Shri Mohammed Faizal PP

29. Shri Bishnupada Ray

30. Dr. Satya Pal Singh

31. Shri B. Sreeramulu

SECRETARIAT

Shri P.P.K. Ramacharyulu, Additional Secretary

Shri Vimal Kumar, Director

Dr. (Smt.) Subhashree Panigrahi, Joint Director

Shri Bhupendra Bhaskar, Deputy Director

Shri Pritam Kumar, Assistant Director

(ii) INTRODUCTION I, the Chairman of the Department-related Parliamentary Standing Committee on Home Affairs, having been authorized by the Committee to submit the report on its behalf, do hereby present this Two Hundred-First Report on Demands for Grants (2017-18) relating to the Ministry of Home Affairs (MHA). 2. The Committee at its meetings held on 27th & 28th February, 2017 considered the Demands for Grants (2017-18) of the Ministry of Home Affairs and heard the Home Secretary and other officers thereon. 3. The Committee in its sitting held on 10th March, 2017 considered and adopted the Report. 4. The Committee while making its observations/recommendations has mainly relied upon the following documents:- (i) Address by the President of India to both Houses of Parliament assembled together on 31st January, 2017; (ii) Speech of Finance Minister on 1st February, 2017 while presenting the Union Budget 2017- 18; (iii) Detailed Demands for Grants of the Ministry of Home Affairs for the year 2017-18; (iv) Outcome Budget of the Ministry 2017-18; (v) Detailed Explanatory Note on Demands for Grants of the Ministry of Home Affairs for the year 2017-18; (vi) Projection of outlays allocations made and expenditure for the schemes undertaken by the Ministry during the Twelfth Five Year Plan; (vii) Details of under-utilization of the allocations made under different heads during the last three years; (viii) Written replies furnished by the Ministry to the Questionnaires sent to them by the Secretariat; (ix) Presentations made by the Home Secretary and other concerned officers; and (x) Written clarifications furnished by the Ministry, on the points/issues raised by the Members during the deliberations of the Committee. 5. For facility of reference and convenience, observations and recommendations of the Committee have been printed in bold letters in the body of the Report.

NEW DELHI; P. CHIDAMBARAM 10th March, 2017 Chairman, Phalguna 19, 1938 (Saka) Department-related Parliamentary Standing Committee on Home Affairs Rajya Sabha.

(iii) ACRONYMS

AGMUT : Arunachal Pradesh-Goa-Mizoram and Union Territory

ADPC : Asian Disaster Preparedness Centre

BADP : Border Area Development Programme

BE : Budget Estimates

BOI : Bureau Of Immigration

BOPs : Border Outposts

BSNL : Bharat Sanchar Nigam Limited

CAG : Comptroller and Auditor General

CAP : Civic Action Plan

CAPFs : Central Armed Police Forces

CCTNS : Crime & Criminal Tracking Network System

CFSL : Central Forensic Science Laboratory

CP : Commissioner of Police

CPC : Central Pay Commission

CPOs : Central Police Organisations

CPWD : Central Public Work Department

CRA : Composite Risk Atlas

Cr. P.C : Code of Criminal Procedure

CSS : Centrally Sponsored Schemes

CTRC : Central Tibetan Relief Committee

CCPWC : Cyber Crime Prevention against Women and Children

DANICS : Delhi-Andaman and Nicobar Island Civil Service

DANIPS : Delhi-Andaman and Nicobar Island Police Service

DCO : Directorate of Census Operations

DDMA : District Disaster Management Authority

DFG : Demand for Grants

DGMO : Directorate General of Military Operation

DPR : Detailed Project Report

(iv) ECBI : Empowered Committee on Border Infrastructure

EWDS : Early Warning Dissemination System

EVA : Entity Extraction, Visualization & Analytics

FYP : Five Year Plan

GFR : General Financial Rule

GIS : Geographic Information System

IAS : Indian Administrative Service

ICPs : Integrated Check Posts

IPS : Indian Police Service

IVFRT : Immigration, Visa and Foreigners Registration & Tracking

JKPCC : J&K Projects Construction Corporation Ltd

JMG : Joint Monitoring Group

LPAI : Land Port Authority of India

INB : India Nepal Border IPC : Indian Penal Code LPG : Liquefied Petroleum Gas LTV : Long Term Visa LWE : Left Wing Extremist/Extremism MHA : Ministry of Home Affairs MPCS : Construction of Multipurpose Cyclone Shelters NATGRID : National Intelligence Grid NCB : Narcotics Control Bureau NCRB : National Crime Record Bureau NCRB : National Cyclone Risk Mitigation Project NCRMP : National Cyclone Risk Mitigation Project NCT : National Capital Territory NDRF : National Disaster Response Force

NE : North East

NHRC : National Human Rights Commission

(v) NIA : National Investigation Agency

NIDM : National Institute of Disaster Management

NSG : National Security Guards

PAP : Protected Area Permit

PDNA : Post Disaster Needs Assessment

PGs : Public Grievances

PMGSY : Pradhan Mantri Gram Sadak Yojana

PMU : Project Management Unit

POK : Pakistan Occupied Kashmir

RAP : Restricted Area Permit

RE : Revised Estimates

RGI : Registrar General of India

SAARC : South Asian Association for Regional Cooperation

SCA : Special Central Assistance

SDMA : State Disaster Management Authority

SIS : Special Infrastructure Scheme

SPG : Special Protection Group

SPO : Special Police Officers

SRE : Security Related Expenditures

SSB : Sashastra Seema Bal

TCIL : M/s Telecommunications Consultants India Ltd

ToT : Training of Trainers

TRAI : Telecom Regulatory Authority of India

TSU : Tear Smoke Unit

UPSC : Union Public Service Commission

UTs : Union Territories

(vi) REPORT

CHAPTER-I

OVERVIEW

1.1 INTRODUCTION

1.1.1 The Ministry of Home Affairs (MHA) has responsibilities of internal security, border management, Centre-State relations, administration of Union Territories, management of Central Armed Police Forces, disaster management, etc.

1.1.2 As per Government of India (Allocation of Business) Rules, 1961 (As Amended up to 15th February, 2017) the Ministry of Home Affairs administers and implements a number of schemes/ programmes and discharges its responsibilities through its departments which have been detailed below with their respective mandates:-

1.1.3 The Department of Official Language, though has a separate Secretary and functions independently, comes under the purview of the Home Ministry. It has the nodal responsibility for all matters relating to the progressive use of Hindi as the Official language of the Union, including Hindi teaching schemes for Central government employees. It also holds the mandate for Publication and distribution of publicity literature for progressive use of Hindi as the official language of the Union.

1.2 ADMINISTRATION DIVISION

1.2.1 The Administration Division is responsible for handling all administrative and vigilance matters, allocation of work among various Divisions of the Ministry and matters relating to the Warrant of Precedence, Padma Awards, Gallantry Awards, Jeevan Raksha Padak, National Flag, National Anthem, State Emblem of India and the Secretariat Security Organisation. Administration is also the Nodal Division for matters relating to Right to Information Act, 2005.

1.3 BORDER MANAGEMENT DIVISION

1.3.1 This Division deals with matters relating to coordination of the Department of Border Management, including matters related to Empowered Committee on Border Infrastructure (ECBI), matters pertaining to Border Area Development Programme (BADP), Integrated Check Posts (ICPs), Land Ports Authority of India (LPAI), management of India-Bangladesh Border, India-Pakistan Border, India-Nepal Border, India-China Border, India-Bhutan Border and India-Myanmar Border and issues relating to Coastal Security and strengthening of border policing, guarding, creation of infra-structure like roads, fencing and flood lighting of borders, in coordination with the Ministry of Defence and the Ministry of External Affai`

1.4 COORDINATION DIVISION

1.4.1 This Division deals with intra-Ministry coordination work, Parliamentary matters, public grievances (PGs), publication of Annual Report of the Ministry, record retention schedule, custody of classified and 2 non-classified records of the Ministry, Internal Work Study and furnishing of various reports relating to employment of SCs/STs and Persons with Disabilities to the Department of Personnel and Training, etc.

1.5 CENTRE-STATE DIVISION

1.5.1 This Division deals with Centre-State relations, including working of the Constitutional provisions governing such relations, appointment of Governors, creation of new States, administration of the Acts relating to the reorgnisation of States, nominations to the Rajya Sabha/Lok Sabha, Inter-State boundary disputes, over-seeing the crime situation in States and imposition of President's Rule. It also has the mandate pertaining to the special provisions in Article 371 to Article 371J of the Constitution with respect to certain States.

1.6 DISASTER MANAGEMENT DIVISION

1.6.1 This Division is responsible for legislation, policy, capacity building, prevention, mitigation, long term rehabilitation, response, relief and preparedness for natural calamities and man-made disasters (except drought and epidemics).

1.7 FINANCE DIVISION

1.7.1 This Division is responsible for formulating, operating and controlling the budget of the Ministry and other matters pertaining to expenditure control, monitoring and financial advice.

1.8 FOREIGNERS DIVISION

1.8.1 This Division deals with all matters relating to visa, Protected Area Permit (PAP) / Restricted Area Permit (RAP) regimes, immigration, citizenship, overseas citizenship of India and acceptance of foreign contribution and hospitality.

1.9 FREEDOM FIGHTERS AND REHABILITATION DIVISION

1.9.1 This Division frames and implements the Freedom Fighters' Pension Scheme and the schemes for rehabilitation of migrants from former West Pakistan/East Pakistan and provision of relief to Sri Lankan and Tibetan refugees.

1.10 INTERNAL SECURITY - I DIVISION

1.10.1Internal Security-I Division deals with matters relating to internal security and law & order, including anti-national and subversive activities of various groups/extremist organisations, terrorist financing, policy and operational issues on terrorism, security clearances, monitoring of ISI activities and Home Secretary-level talks with Pakistan on counter terrorism.

1.11 INTERNAL SECURITY - II DIVISION

1.11.1 Internal Security-II Division deals with matters relating to arms and explosives, extradition, narcotics, Narcotics Control Bureau, the National Security Act and security of VIPs/ vital installations. 3

1.12 INTERNAL SECURITY - III DIVISION

1.12.1This Division deals with matters relating to the Protection of Human Rights Act as also matters relating to national integration, communal harmony and Ayodhya.

1.13 INTERNATIONAL CO-OPERATION DIVISION

1.13.1This Division deals with meetings of the SAARC interior/Home Ministers, matters relating to policy formulation on issues of internal security, international cooperation on counter-terrorism, international covenants, bilateral assistance treaties and related items.

1.14 JAMMU & KASHMIR DIVISION

1.14.1This Division deals with constitutional matters including Article 370 of the Constitution of India and general policy matters in respect of the State of Jammu & Kashmir and terrorism / militancy in that State. It is also responsible for implementation of the Prime Minister's Package for Jammu and Kashmir.

1.15 Judicial Division

1.15.1This Division deals with all matters relating to the legislative aspects of the Indian Penal Code (IPC), Code of Criminal Procedure (Cr.P.C.) and the Commission of Inquiry Act. It also handles matters relating to the State legislations which require the assent of the President of India under the Constitution, political pension to erstwhile rulers before independence and mercy petitions under Article 72 of the Constitution of India.

1.16 LEFT WING EXTREMISM (LWE) DIVISION

1.16.1This Division was created on October 19, 2006 in the Ministry to effectively tackle the LWE menace from both security and development angles. It monitors the LWE situation and counter-measures being taken by the affected States with the objective of improving ground-level policing and development response as per the location specific action plans formulated/to be formulated by the affected States. It also reviews proper implementation of various developmental schemes of Ministries / Departments concerned in the LWE affected areas as also optimum utilisation of funds released under such schemes.

1.17 NORTH EAST DIVISION

1.17.1This Division deals with the internal security and law & order situation in the North-Eastern States, including matters relating to insurgency and talks with various extremist groups operating in that region.

1.18 POLICE - I DIVISION

1.18.1Police-I Division functions as the cadre controlling authority in respect of Indian Police Service (IPS) and also deals with all matters relating to training of police personnel, award of President's Police Medals for Meritorious / Distinguished service and Gallantry.

1.19 POLICE - II DIVISION

1.19.1Police-II Division deals with all matters relating to Central Armed Police Forces (CAPFs), including their deployment. 4

1.20 POLICE MODERNISATION DIVISION

1.20.1This Division handles work relating to modernisation of State Police Forces, provisioning of various items for modernisation of Central Armed Police Forces, police reforms.

1.21 UNION TERRITORIES DIVISION

1.21.1This Division deals with legislative and constitutional matters relating to Union Territories, including National Capital Territory of Delhi. It also functions as the cadre controlling authority of the Arunachal Pradesh-Goa-Mizoram and Union Territory (AGMUT) cadre of Indian Administrative Service (IAS) / Indian Police Service (IPS) as also Delhi-Andaman and Nicobar Island Civil Service (DANICS)/ Delhi- Andaman and Nicobar Island Police Service (DANIPS). It is also responsible for overseeing the crime and law & order situation in the Union Territories. 5

CHAPTER-II

OVERALL ASSESSMENT OF DEMANDS FOR GRANTS

2.1 OVERVIEW

2.1.1 There are ten Demands for Grants which are administered by the Ministry of Home Affairs (MHA). The Detailed Demands for Grants of the Ministry of Home Affairs are divided into two volumes. The Detailed Demands for Grants (Volume-I) contains three Grants (Nos. 46-48), namely: Ministry of Home Affairs (Grant No. 46); Cabinet (Grant No. 47); and Police (Grant No. 48). Volume-II contains seven Grants (49 to 55) meant for the seven Union Territories.

2.1.2 The total allocation for all the ten Demands for Grants of the Ministry of Home Affairs in Budget Estimates 2017-18 is ` 99279.58 Crore. In BE 2016-17, it was ` 89996.83 crore which was increased by 4.67% to ` 94204.68 crore at RE stage. Thus, allocation in BE 2017-18 shows an increase of 10.31% over BE 2016-17 and 5.38% over RE 2016-17. Out of ` 99279.58 crore allocated in BE 2017-18, ` 85852.90 crore is under Revenue head whereas ` 13426.68 crore is earmarked under Capital head.

2.1.3 The Committee was informed that the Twelfth Five Year Plan period has ended during 2016-17. From the year 2017-18 onwards, distinction between Plan and Non-Plan outlays has been done away with. Henceforth, the budgetary allocations will only be categorized as Revenue and Capital.

2.2 ALLOCATIONS, PROJECTIONS AND VARIATIONS

2.2.1 The allocation of ` 99279.58 crore to Ministry of Home Affairs for 2017-18, has been distributed under ten grants, as given below:-

Table 2.1

(` in crore)

Demand BE 2017-18 Percentage of Total Grant (` in crores) to MHA (approx.)

123

46 - MHA 5100.00 5.14

47 - Cabinet 730.00 0.74

48 - Police 78723.30 79.29

Total - MHA 84553.30 85.17

49- Andaman and Nicobar Islands 4263.28 4.29

50- Chandigarh 4312.40 4.34

51- Dadra and Nagar Haveli 1075.62 1.08

5 6

123

52- Daman and Diu 1585.06 1.60

53- Lakshadweep 1248.91 1.26

TOTAL - UTs (Without Legislature) 12485.27 12.58

54-Transfers to Delhi 758.00 0.76

55-Transfers to Puducherry 1483.01 1.49

Total all Grants 99279.58 100.00

2.2.2 The following table indicates variation of BE 2017-18 in percentage terms with respect to BE and RE 2016-17:-

Table 2.2

(` in crore)

Demand BE 2016-17 BE 2017-18 Variation RE BE Variation (` Cr.) (` Cr.) (in %) 2016-17 2017-18 (in %) (` Cr.) (` Cr.)

1234567

46 - MHA 4630.90 5100.00 10.13 4846.00 5100.00 5.24

47 - Cabinet 419.64 730.00 73.96 646.00 730.00 13.00

48 - Police 70724.58 78723.30 11.31 73968.00 78723.30 6.43

TOTAL - MHA 75775.12 84553.30 11.58 79460.00 84553.30 6.41

49- Andaman and 4144.02 4263.28 2.88 4553.74 4263.28 -6.38 Nicobar Islands

50- Chandigarh 3937.79 4312.40 9.51 4268.75 4312.40 1.02

51- Dadra and Nagar 1071.74 1075.62 0.36 1105.19 1075.62 -2.68 Haveli

52- Daman and Diu 1665.32 1585.06 -4.82 1536.19 1585.06 3.18

53-Lakshadweep 1254.84 1248.91 -0.47 1037.67 1248.91 20.36

TOTAL - UTs (Without 12073.71 12485.27 3.41 12501.54 12485.27 -0.13 Legislature)

54-Transfers to Delhi 758.00 758.00 0.00 818.00 758.00 -7.33

55-Transfers to 1390.00 1483.01 6.69 1425.14 1483.01 4.06 Puducherry

TOTAL all Grants 89996.83 99279.58 10.31 94204.68 99279.58 5.39 7

2.2.3 The Committee sought to know about the overall projections made by the Ministry for the year 2017-18 under various demands and the corresponding shortage faced by it in allocations. The overall demands projected by the Ministry, allocations made and shortfall are as under:

Table 2.3

(` in crore)

Demand BE 2016-17 RE 2016-17 BE BE Shortfall Shortfall (` in crore) (` in crore) 2017-18 2017-18 (` in crore) (Percent) (Projected) (Granted) (` in crore) (` in crore)

46 - MHA 4630.90 4846.00 5582.00 5100.00 -482.00 -8.63

47 - Cabinet 419.64 646.00 438.37 730.00 291.63 66.53

48 - Police 70724.58 73968.00 102249.76 78723.30 -23526.46 -23.01

TOTAL - MHA 75775.12 79460.00 108270.13 84553.30 -23716.83 -21.91

49- Andaman and 4144.02 4553.74 5320.06 4263.28 -1056.78 -19.86 Nicobar Islands

50-Chandigarh 3937.79 4268.75 6151.56 4312.40 -1839.16 -29.90

51- Dadra and 1071.74 1105.19 2297.67 1075.62 -1222.05 -53.19 Nagar Haveli

52- Daman and Diu 1665.32 1536.19 1918.20 1585.06 -333.14 -17.37

53-Lakshadweep 1254.84 1037.67 1521.49 1248.91 -272.58 -17.92

TOTAL - UTs 12073.71 12501.54 17208.98 12485.27 -4723.71 -27.45 (WithoutLegislature)

54-Transfers to Delhi 758.00 818.00 7735.00 758.00 -6977.00 -90.20

55-Transfers to 1390.00 1425.14 3132.00 1483.01 -1648.99 -52.65 Puducherry

TOTAL ALL GRANTS 89996.83 94204.68 136346.11 99279.58 -37066.53 -27.19

2.2.4 The Ministry of Home Affairs was also asked to provide division-wise and scheme-wise demands projected by it before the Ministry of Finance. The Ministry submitted statement of projections of funds along with allocations which is placed at Annexure - I

2.2.5 The Ministry submitted that some of the schemes like infrastructure of CAPFs, capacity building for Disaster Management, countering terrorism in Jammu & Kashmir, North Eastern Areas, Left Wing Extremism affected states, Border Infrastructure viz. Roads, Border Out Posts, Fencing, Integrated Check Posts may not be able to function at their full potential due to reduced allocation. 8

2.2.6 The Committee has noted a nominal increase of 5.24% in allocation under the Demand No. 46 (MHA) and 6.43% in allocation under Demand No. 48 (Police) as compared to the allocation made in RE 2016-17. The Committee feels that this nominal increase may not be even sufficient to offset the impact of higher wages due to the 7th Central Pay Commission's recommendations and higher costs due to normal inflationary pressures. Moreover, the allocation under Demand No. 48 (Police) is 23% lower than the amount projected by the Ministry. The Committee feels that this shortfall of nearly ` 23,526 crore may severely hamper the operations of the security forces and impede the operations of police and border infrastructure in the country. The Committee recommends that the Ministry of Home Affairs, in view of the imminent necessity of strengthening the border and internal security of the country, should pursue the Ministry of Finance for higher allocations at RE stage.

2.2.7 The Committee also observes that overall allocation to UTs is much lower in comparison to what they have projected. The Committee feels that this may hamper the growth and development of the UTs. The Committee recommends that the Ministry should approach the Ministry of Finance for higher allocation to these UTs at RE stage. Detailed analysis of the respective Grants has been given in Chapter-V of the Report.

2.3 UNDERUTILISATION OF FUNDS

2.3.1 The Ministry apprised the Committee with the fund utilization status under its various demands during its presentation on DFG (2017-18) on 27th and 28th February, 2017 as under:

Utilisation status under Demands No. 46 and 48

Table 2.4

(` in crore)

Grant No. Section BE 16-17 RE 16-17 Expdr. on Expdr. % 15.2.17 w.r.t. RE 16-17

46 MHA Plan 1,250.00 1,236.56 1,067.72 86.35

Non-Plan 3,380.90 3,609.44 2,833.08 78.49

Total 4,630.90 4,846.00 3,900.80 80.50

48 Police Plan 7,700.00 6,721.30 4,856.92 72.26

Non-Plan 63,024.58 67,246.70 59,423.96 88.37

Total 70,724.58 73,968.00 64,280.88 86.90

Plan 8,950.00 7,957.86 5,924.64 74.45

Overall Non-Plan 66,405.48 70,856.14 62,257.04 87.86

Total 75,355.48 78,814.00 68,181.68 86.51 9

Utilisation status under Demands No. 49 to 53 (UTs without Legislature)

Table 2.5

(` in crore)

Name of the Grant BE 2016-17 RE 2016-17 Expenditure % of RE BE as on date 2017-18 i.e. 31.1.17

49-Andaman and 4144.02 4553.74 3249.45 71.36% 4263.28 Nicobar Islands

50-Chandigarh 3937.79 4268.75 3508.42 82.19% 4312.40

51-Dadra and Nagar 1071.74 1105.19 811.58 73.30% 1075.62 Haveli

52-Daman and Diu 1665.32 1536.19 1105.54 71.97% 1585.06

53-Lakshadweep 1254.84 1037.67 735.22 70.85% 1248.91

TOTAL 12073.71 12501.54 9410.21 75.27% 12485.27

Utilisation status under Demands No. 54 and 55 (UTs with Legislature)

Table 2.6

(` in crore)

BE 2016-17 RE 2016-17 Expenditure % of RE as on date

54-Transfers to Delhi 758.00 818.00 757.99 92.66%

55-Transfers to 1390.00 1425.14 1379.99 96.83% Puducherry

TOTAL 2148.00 2243.14 2137.98 95.31%

2.3.2 Since the Government has discarded the distinction between Plan and Non-Plan budgetary allocation from 2017-18, the Committee wanted to know as to how and in what manner this would change the utilization pattern of allocated funds and also sought details of the utilization pattern of allocated funds in successive years of the Twelfth Five Year Plan by the Ministry of Home Affairs. The Ministry submitted the Division-wise Statement showing the BE/RE/Actual Expenditure in respect of various Plan schemes of MHA during the period 2012-13 to 2016-17 (as on 30.12.2016) placed at Annexure-II.

2.3.3 The Committee takes a very serious view of under utilization of funds in respect of the Plan Schemes of Ministry of Home Affairs throughout the 12th Five Year Plan. Almost every year, several important Divisions of MHA including Border Management, Disaster Management, 10

Police-I, Police-II and Internal Security-I Divisions have surrendered huge amounts of funds at RE stage. In some cases the surrendered funds were to the tune of 50% and above which is a clear indication of incoherent planning, lack of conviction and inefficient functioning of the Divisions concerned. In most of the Schemes/Heads wherein funds were surrendered, the reasons given by the Ministry were mostly related to non-finalisation of proposals, slow progress of construction works and procedural delays. The Committee expresses its displeasure in the strongest terms on this issue and observes that surrendering of funds at RE stage may be seen as a clear measure of inefficiency of and unrealistic budgeting by the Divisions concerned as this has direct ramifications on the country's security and law and order situation.

2.3.4 The Committee also notes that some Divisions were unable to completely utilise the funds even after the substantial cuts at RE stages imposed by the Ministry of Finance. The Committee feels that this is quite inexcusable as failure to absorb the funds even after surrendering nearly 40-60% of the budgetary allocations at RE stage is an indicator of underperformance. The Committee, therefore, recommends that the Ministry of Home Affairs must explore innovative solutions, prepare flexible and workable action plans, consistently meet all deadlines, and develop strategic alternatives wherever the current strategy may not yield the intended results so as to achieve the desired physical and financial targets. 11

CHAPTER-III

DEMANDS NO. 46

3.1 DEMAND NO. 46 - MINISTRY OF HOME AFFAIRS

3.1.1 Demand No. 46 comprises of the provisions made for Ministry of Home Affairs (MHA) Secretariat, Office of the Registrar General of India (RGI) for Census activities, various offices functioning under Department of Official Language, Civil Defence, Home Guards, National Human Rights Commission, Fire Services and Departmental Accounting Organisation of MHA and World Bank assisted National Cyclone Risk Mitigation Project.

3.1.2 With effect from the Financial Year 2016-17, under this Demand, the provision on account of rehabilitation of repatriates / migrants from other countries and from the State of J&K, Pension and other benefits of Freedom Fighters, Helicopter subsidies for North-East and various other schemes of Disaster Management were incorporated. The budgetary provision under the Demand No. 46 for 2016-17 is given in the following table:-

Table 3.1

(` in crore)

Actuals BE RE BE 2015-16 2016-2017 2016-2017 2017-2018

Revenue 3724.61 4330.54 4642.56 4777.03

Capital 92.08 300.36 203.44 322.97

Total 3817.41 4630.90 4846.00 5100.00

3.1.3 The Committee sought to know the reasons for variation between RE 2016-17 and BE 2016-17 from the Ministry. The Committee was informed that the increase of ` 312.02 crore in RE 2016-17 over BE 2016-17, under Revenue Head, was mainly under salary heads of various Organizations due to implementation of recommendations of the 7th Central Pay Commission (CPC). It was informed that a considerable increase of ` 500 crore was effected to meet the expenditure towards rehabilitation package for settlement of displaced families from Pakistan-occupied Kashmir and five Chhamb Niabat Areas under Prime Minister's Development Package for Jammu and Kashmir. Further, additional funds will be required under various heads such as Medical Treatment, Office Expenses, Other Administrative Expenses, Professional Services, and Minor Works, etc. in order to settle pending bills, purchase of stationery items, purchase of computers and their parts, payment of wages to casual workers, etc.

3.1.4 Under Capital head, decrease of ` 96.92 crore in RE 2016-17 over BE 2016-17 was due to reduced requirement of funds by National Institute of Disaster Management, National Institute of Disaster Management - Andhra Pradesh and National Disaster Response Force (NDRF) for various reasons such

11 12 as delay in starting of projects, delay in purchase of lands etc. The Ministry pointed out that savings under Motor Vehicle, Machinery and Equipment head were due to delay in procurement of items such as vehicles, spare parts, inflatable boats, etc.

3.1.5 The Committee notes the cut effected at RE stage in 2016-17 under capital head were due to delays in start of projects, purchase of land and procurement of equipments, and feels that procedural delays and inefficient functioning are the fundamental reasons due to which project implementation suffers and capital funds remain unutilized. The Committee recommends that the Ministry should make sincere efforts to remove all the bottlenecks and procedural delays that have led to surrendering of substantial funds in 2016-17 and ensure that capital funds are fully utilized in the next fiscal.

3.1.6 The details of projections made and underutilization of funds under this Demand are placed at Annexures I and II respectively. The details of variations in Budgetary allocation under various Schemes/ Heads under Demand No. 46 are as follows:

Variations in Budgetary Allocation of Various Schemes/Heads under Demand No. 46

Table 3.2

(` in crore)

Sl. No. Scheme/Head Actuals BE RE Variation of BE Variation of 2015-16 2016-17 2016-17 RE 2016-17 2017-18 BE 2017-18 over BE over RE 2016-17 2016-17

12 345678

1. Ministry of Home Affairs 325.88 403.20 360.88 -10.50 435.14 20.58% (Secretariat)

2. Official Language 49.60 65.11 58.88 -9.57 65.48 11.21%

3. National Disaster Response 513.55 606.91 647.24 6.65 650.27 0.47% Force (NDRF)

4. Relief and Rehabilitation for 556.25 910.28 1124.26 23.51 1205.90 7.26% Migrants and Repatriates

5. Freedom Fighters (pension 789.47 760.16 760.16 0.00 750.16 -1.32% and other benefits)

6. Helicopter Services in the 76.45 86.00 86.00 0.00 86.00 0.00% North East Region

7. Infrastructure for Disaster 31.19 212.11 143.51 -32.34 208.02 44.95% Management

8. National Cyclone Risk 159.01 11.92 4.33 -63.67 4.25 -1.85% Mitigation Project

9. Other Disaster Management 33.33 64.15 52.74 -17.79 81.30 54.15% Schemes 13

12 345678

10. Special Industry Initiative 45.00 70.00 90.00 28.57 70.00 -22.22% for Jammu and Kashmir

11. Civic Action Programme 46.98 60.30 102.30 69.65 70.00 -31.57% and Media Plan

12. National Human Right 35.94 44.06 44.06 0.00 48.92 11.03% Commission (NHRC)

13. Census, Survey and 594.40 586.21 647.48 10.45 634.57 -1.99% Statistics/Registrar General of India

14. Other Central Miscellaneous 18.93 31.71 21.14 -33.33 22.27 5.35% Expenditure

15. National Cyclone Risk 469.77 630.00 630.00 0.00 690.00 9.52% Mitigation Project with World Bank Assistance

16. Other Disaster Management 10.00 23.75 14.12 -40.55 25.72 82.15% Projects

17. Home Guard 36.98 37.00 35.40 -4.32 26.00 -26.55%

18. Civil Defence 9.69 10.00 10.00 0.00 10.00 0.00%

19. Payment to State Govts. 14.99 18.03 13.50 -25.12 16.00 18.52% for Administration of Central Acts

MHA TOTAL 3817.41 4630.90 4846.00 4.64 5100.00 5.24% (Demand No. 46)

3.1.7 The Committee sought to know the reasons for major variations in allocations made for various Schemes/Heads under Demand No. 46, shortfall in allocation as compared to the projected outlay and underutilization of allocations during 2016-17. The Ministry submitted the following reasons under various Heads/Schemes:

3.2 Ministry of Home Affairs (Secretariat) Head: Table 3.3 (` in crore) Section BE 2016-17 RE 2016-17 Exp. BE 2017-18 BE 2017-18 (Upto Dec (Projected) (Granted) 2016) 123456 Revenue 363.18 340.96 289.28 454.30 397.12 Capital 40.02 19.92 13.06 45.62 38.02

TOTAL 403.20 360.88 302.34 499.92 435.14 14

3.2.1 The decrease in RE 2016-17 over BE 2016-17 was primarily due to reduced requirement of funds projected under various secretariat expenditures and austerity measures observed within the organization under Revenue Head and savings recorded by the organizations on account of delayed start of civil projects, non-approval on purchase of vehicles etc. under Capital Head.

3.2.2 The significant increase in BE 2017-18 over RE 2016-17 was mainly under the object head Salaries to accommodate anticipated payment of increased allowances and arrears under the 7th CPC and to meet expenses on shifting some offices of MHA from NDCC-II Building, Connaught Place to Major Dhayan Chand National Stadium, New Delhi on security grounds. The increase under Capital Head was mainly for creation of infrastructure in the new campus of the National Fire Service College, Nagpur.

3.3 NATIONAL DISASTER RESPONSE FORCE (NDRF)

Table 3.4

(` in crore)

Actuals BE RE BE

2015-2016 2016-2017 2016-2017 2017-2018

Revenue 473.76 558.89 607.24 598.35

Capital 39.79 48.02 40.00 51.92

TOTAL 513.55 606.91 647.24 650.27

3.3.1 There was an increase of ` 48.35 crore in RE 2016-17 over BE 2016-17 under Revenue head mainly due to requirement under salary head of NDRF due to implementation of recommendations of the 7th CPC and payment of arrears on this count, while there was a decrease under Capital head at RE stage as anticipated approval on purchase of parts of machinery and purchase of vehicles could not materialize.

3.3.2 The Committee also sought details of measures being taken by MHA to enhance the capacity of NDRF. The Ministry informed that two additional battalions of NDRF were raised in the year 2015 by conversion of two standard battalions of the Sashastra Seema Bal (SSB). In order to enhance the capacity of NDRF, a proposal for raising four additional battalions (to be stationed in Delhi-NCR, Himachal Pradesh, Uttarakhand and Jammu & Kashmir) was under consideration in the Ministry.

3.3.3 NDRF was allocated ` 650.27 crore in BE 2017-18 as compared to the projected outlay of ` 882.03 crore. The Ministry managed to spend around 95% of the amount allocated at RE stage by the end of December, 2016.

3.3.4 While examining the projections made under this Demand, the Committee notes that there is a shortfall of ` 231.76 crore in the allocation made to NDRF Head in BE 2017-18 as compared to the demand projected by MHA. The Committee is concerned to find reduced allocation despite very good fund utilization by NDRF during 2016-17. The Committee, in view of proposed 15 expansion plans of NDRF, recommends that MHA must pursue the Ministry of Finance for higher allocation to NDRF at RE stage so as to overcome any financial bottlenecks.

3.4 RELIEF AND REHABILITATION FOR MIGRANTS AND REPATRIATES

Table 3.5

(` in crore)

Actuals BE RE BE

2015-2016 2016-2017 2016-2017 2017-2018

Revenue 556.25 910.28 1124.26 1205.90

Capital 0 0 0 0

Total 556.25 910.28 1124.26 1205.90

3.4.1 The increase of in RE 2016-17 over BE 2016-17 was mainly due to a considerable increase of ` 500 Cr for meeting the expenditure towards rehabilitation package for settlement of displaced families from Pakistan occupied Kashmir and Chhamb Niabat Areas under Prime Minister Development Package for Jammu and Kashmir. The increase of ` 81.64 crore in BE 2017-18 over RE 2016-17 has occurred mainly due to enhanced provisioning for the State of West Bengal for effecting Land Boundary Agreement, 1974 and its Protocol, 2011.

3.4.2 The Committee also sought details of utiliation of funds under this head during 2016-17. The Ministry replied that Relief and Rehabilitation of Migrants and repatriates was an Umbrella of Scheme and the details of expenditure incurred on various schemes are given in the table below:

Table 3.6

(` in crore)

Heads BE RE Exp BE 2016-17 2016-17 Upto 2017-18 Dec, 16

1 2 3 4 5 Displaced Persons from West Pakistan 0.02 0.00 0.00 0.02 Management & Sale of Evacuees and Govt. Build 0.02 0.00 0.00 0.02 property Tibetan Refugees- Assistance to Dalai Lama's Central 8.00 8.00 8.00 8.00 Tibetan Relief Committee Resettlement of Chhamb displaced 0.01 0.00 0.00 0.00 Displaced persons from POK and Chhamb Niabat Area 0.01 500.00 0.00 300.00 16

1 2 3 4 5

Repatriation of Indian Prisonersfrom Aborad 0.10 0.05 0.00 0.10 Assistance to Victims Victims of Terrorist & 8.00 6.00 2.75 10.00 Communal Violence Enhanced compensation for death, damage to 17.00 10.00 5.48 5.00 properties in 1984 riots Additional relief to victims of Communal riots 1.00 0.10 0.00 0.25 in Gujarat Additional relief to victims of Communal riots 1.00 0.10 0.00 1.00 in Bhagalpur Rehabilitation - Mizoram 15.00 15.00 7.50 16.50 Rehabilitation - Tripura 20.00 15.00 13.39 20.00 Rehabilitation - Jammu and Kashmir 450.00 385.00 353.55 450.00 Rehabilitation of Old Migrants - West Bengal 0.01 0.00 0.00 0.00 New Migrants- Dandakaranaya 0.01 0.00 0.00 0.00 Land Boundary - India & Bangladesh 340.00 140.00 0.00 340.00 Repatriates from Sri Lanka 50.00 45.00 11.26 50.00 Development of Administrative 0.00 0.00 0.00 5.00 Infrastructure for Bodo Territorial Council Tibetan Refugees 0.10 0.01 0.00 0.01

Relief and Rehabilitation for Migrants and Repatriates 910.28 1124.26 401.93 1205.90

3.4.3 The Committee also desired to know the various activities and schemes/projects for which this enhanced allocation in BE 2017-18 was proposed to be used by the Ministry. The Ministry replied that under Relief and Rehabilitation of migrants and repatriates, an amount of ` 527.59 crore was projected in BE 2017-18 for providing relief assistance to Sri Lankan Tamil refugees staying in camps, Tibetan refugees and rehabilitation of returnees from erstwhile Indian Enclaves in Bangladesh and creation/up- gradation of infrastructure in former Bangladeshi Enclaves in India and in Cooch Behar District in West Bengal.

3.4.4 On the issue of rehabilitation of the persons who opted for Indian citizenship subsequent to exchange of enclaves between India and Bangladesh, the Ministry intimated that the number of Bangladeshis who opted for Indian citizenship after exchange of enclaves was 14864. On 02.12.2015, Government of India sanctioned, the Rehabilitation Package and up-gradation of infrastructure of the Bangladeshi Enclaves and Cooch Behar District after transfer of enclaves between India and Bangladesh at a cost of `1005.99 crore. The package granted by Government of India was to be implemented by Government of West Bengal for a period of five years from 2015-16 to 2019-20. The Bangladeshi persons residing 17 in India who have been granted Indian citizenship will avail of the benefit of the package in terms of creation and upgradation of infrastructure such as pucca road, kutcha road, drain, culverts, bridges, mark II tubewell, piped water supply, deep tubewell, primary school, high school, health sub centre, Angan Wari Centre, household electricity etc. in 51 former Bangladeshi enclaves now integrated in Indian territory. An amount of ` 298.5 crore had been earmarked in the rehabilitation package for this purpose.

3.4.5 The Committee also inquired about the new initiatives that were taken during the last two years under this scheme for relief and rehabilitation of various refugees and migrants groups. The Ministry apprised the Committee as follows:

(i) Government of India enhanced the rate of cash relief being provided to the eligible Kashmiri migrants, from `1650 (maximum `6600/- per family per month) per head to `2500/- per head per month (maximum `10000/- per family per month).

(ii) Under PM's Rehabilitation Package-2015, 3000 additional posts were identified in 18 different departments by the State Government of J&K and creation of these posts was underway. Further, authorization has been issued to the executing agency (JKPCC) for construction of 96 transit accommodations at Sheikhpura (Budgam) and 304 transit accommodations at Vessu (Quazigund, Kulgam). The construction work at both these sites was in progress. The State Government identified about 90 Acres (723 Kanals) of land in 7 districts of Kashmir valley for construction of 3440 transit accommodations. The State Government will issue notification for land acquisition soon and begin construction work.

(iii) In 2015, Government of India sanctioned ` 40 crore for providing grant-in-aid to Central Tibetan Relief Committee (CTRC), a registered Society headed by His Holiness, Dalai Lama to meet administrative and social welfare expenses over a period of 5 years from 2015-16 to 2019-20.

(iv) About 1622 Bru families (8573 Nos.) have been repatriated and resettled in Mizoram so far. To review the repatriation process, a Joint Monitoring Group (JMG) under the chairmanship of JS (NE), MHA was constituted on 10.8.2016 with members from State Governments of Tripura and Mizoram, Bru representatives from Tripura and Civil Society Organization in Mizoram. Meetings of this Group were held on 30.8.2016, 10.10.2016, 24.11.2016 and 12.2.2017 to discuss and decide issues related to repatriation of Brus families to Mizoram. 5407 Bru families (32876 individuals) have been identified to be repatriated in Phase I to Mizoram.

3.4.6 The Ministry also informed that there was no National Law on Refugees at present, nor was the Ministry planning to come out with a comprehensive refugee policy or legislation.

3.4.7 The Committee notes that an amount of ` 500 crore has been provided for expenditure towards rehabilitation package for settlement of displaced families from Pakistan occupied Kashmir and Chhamb Niabat Areas under Prime Minister Development Package for Jammu and Kashmir. However, no expenditure was incurred upto December, 2016 on this account. The Committee, 18 therefore, strongly recommends that the Ministry should earnestly implement this package by making prudent and timely utilization of allocated funds. The Committee also desires to be apprised about the status of the implementation of this rehabilitation package.

3.4.8 The Committee is displeased with the fact that against an allocation of ` 340 crore in BE 2016-17 for Rehabilitation Package and up-gradation of infrastructure of the Bangladeshi Enclaves and Cooch Behar District, ` 200 crore were surrendered at RE stage and even after that no expenditure was incurred by the Ministry upto December, 2016. The Committee is particularly anguished at the reports of these persons living in abject poverty and left to fend for themselves even for most basic necessities. The Committee would like to strongly emphasize the importance of expeditiously implementing this rehabilitation package for the persons who have expressed their faith in India and opted for Indian citizenship with a hope that Government of India will provide them essential facilities and decent means of livelihood and infrastructure. The Committee, therefore, recommends that the Ministry of Home Affairs should not let the returnees from Bangladeshi enclaves suffer anymore and should implement the rehabilitation package with utmost sincerity and urgency and, until the package is fully implemented, adequate relief may be sanctioned and provided to them on a continuous basis. The Committee also recommends that the senior officers of the Division concerned may visit the enclave dwellers periodically and review the status of implementation of the package on a regular basis. The Committee may also be kept apprised of this on a quarterly basis till the implementation is completed.

3.4.9 The Committee recommends that the Ministry of Home Affairs may sanction some amount of cash relief to be paid on a monthly basis to all the families who opted for Indian citizenship subsequent to the exchange of enclaves between India and Bangladesh. An urgent decision may be taken to provide this assistance immediately and arrangements may be made for directly transferring this assistance into the Aadhaar-linked bank accounts of the beneficiaries under the Direct Benefit Transfer Scheme.

3.5 INFRASTRUCTURE FOR DISASTER MANAGEMENT

Table 3.7

(` in crore)

Actuals BE RE BE

2015-2016 2016-2017 2016-2017 2017-2018

Revenue 473.76 558.89 607.24 598.35

Capital 39.79 48.02 40.00 51.92

TOTAL 513.55 606.91 647.24 650.27

3.5.1 The Ministry informed that this scheme contains provision for expenditure on construction of Office and Residential Buildings of National Disaster Response Force (NDRF), acquisition of land and 19 construction of premises for the National Institute for Disaster Management (NIDM) and for building of specialized capability for rapid intervention in case of disaster.

3.5.2 The Ministry has informed that the decrease of ` 68.60 crore in RE 2016-17 over BE 2016-17 was mainly due to non-finalization of proposals under various schemes of National Disaster Response Force and delay in clearance of infrastructure projects. The increase of ` 64.51 crore in BE 2017-18 over RE 2016-17 is for funding the proposals for infrastructure that have got approvals during the current financial year after a considerable delay. The construction activities are now in full swing, and the target date for completion of these works is March, 2018.

3.5.3 The Committee expresses its concern over the non finalization of proposals of NDRF and delay in clearance of infrastructure projects due to which substantial amount of funds were surrendered at RE stage 2016-17. All ground work should have been done before the proposals were made at BE stage. The Committee notes that approval has now been granted and construction has begun. The Committee recommends that the construction work may be fast-tracked and all the infrastructure projects may be completed as per the timeline.

3.6 NATIONAL CYCLONE RISK MITIGATION PROJECT

Table 3.8

(` in crore)

Actuals BE RE BE

2015-2016 2016-2017 2016-2017 2017-2018

Revenue 159.01 11.92 4.33 4.25

Capital 0.00 0.00 0.00 0.00

TOTAL 159.01 11.92 4.33 4.25

3.6.1 The Ministry informed that the NCRMP scheme contains provision for administrative expenditure on National Cyclone Risk Mitigation Project with World Bank Assistance to minimize the vulnerability in the cyclone hazard prone coastal States. It submitted that the variations at revised estimates and next financial year's projections were observed as the work under Phase-I of NCRMP had reached its closure requiring less secretariat expenditure.

3.6.2 The Committee desired to be apprised about the status of implementation of various components of the National Cyclone Risk Mitigation Project. The Ministry provided the detailed status of implementation of various components of National Cyclone Risk Mitigation Project as under:-

Component- 'A' - Early Warning Dissemination System (EWDS):

3.6.3 Presently, the States of Andhra Pradesh and Odisha with technical assistance/support from M/s. Telecommunications Consultants India Ltd. (TCIL) are implementing EWDS as part of NCRMP 20

Phase-I. Both States have awarded the contract to M/s. Larsen & Toubro for installation of equipments and EWDS is expected to be commissioned by middle of 2017.

Component-'B' Cyclone Risk Mitigation Infrastructure:

3.6.4 Physical Progress and Achievements under NCRMP Phase-I and II is as under:-

NCRMP Phase-I

Table 3.9

(` in crore)

Sl. Component Unit Total to be Total Under Remarks No. constructed completed Execution

1. Construction of No. 538 326 209 Under execution Multi-purpose Cyclone works are at various Shelters (MPCS) stages of completion. 3 MPCS, 3 Road works deleted, 3 Road works under tender action. 2. Approach Roads No./Km. 717/1092.68 600/867.27 111/217.05 1 bridge work at tender stage.

3. Bridges No. 35 20 14

4. Saline No./Km. 14/87.67 7/31.44 7/56.23 Embankment

NCRMP Phase-II

Table 3.10

(` in crore)

Sl. Component Unit Total to be Total Under Remarks No. constructed completed Execution

1. Construction of No. 353 0 180 All the other sites Multi-purpose are under various Cyclone Shelters stages of finalization, (MPCS) Environment clearance, DPR and various stages of tendering.

2. Approach Roads Km. 310 70 100 21

Component-'C' Technical Assistance for Multi-Hazard Risk Management:

3.6.5 The following three studies have been undertaken under this Component in the project:

(i) The Coastal Hazard, Risk and Vulnerability Assessment: To analyse risk at village level, the Web-based Composite Risk Atlas (CRA) has been developed as the main outcome of this study which has been shared with all costal States/UTs. This CRA will be used by coastal States for mitigation, response, planning and training purposes.

(ii) Preparing Long Term Training and Capacity Building: To identify capacity gaps in certain priority sectors and develop training plan/modules accordingly for capacity building, this study was undertaken by National Institute of Disaster Management (NIDM). Rolling out of training modules as per finalized Operational plan has commenced by NIDM from January, 2017. NIDM is conducting Training of Trainers (ToT) courses at National level for all States which will be followed by training courses in the States under Phase-II of project.

(iii) Post Disaster Needs Assessment (PDNA): This study has been awarded by NIDM to Asian Disaster Preparedness Centre (ADPC), Thailand with an objective to evolve standardized PDNA tools relevant to India and revamp the entire system of PDNA in the country. The study is at an advanced stage of completion.

Component-'D' Project Management and Implementation Support:

3.6.6 This component supports the incremental operating costs of the Project Management Unit (PMU) and the State Project Implementation Units (SPIUs). In addition, the component includes consultancies required for the preparation and supervision of specific activities, training, exposure visits and knowledge exchange programmes. Component is being executed as per the actual requirement to meet office expenses etc. of various State Project Implementation Units, PMU and NIDM.

3.6.7 The Committee notes that Early Warning Dissemination System is expected to be commissioned by mid-2017 and recommends that it should be completed as per the schedule without any delay so as to be operational before September of this year which is the time when tropical cyclones usually arrive at the Eastern coast of India.

3.6.8 The Committee, however, observes that only one bridge was constructed in 2016-17 and substantial number of shelters, roads, bridges and Saline Embankments are still under execution in Phase I of NCRMP. The Committee recommends that the Ministry should pursue the States for completion of this Phase at the earliest. In Phase-II, several works are under various stages of finalization, environment clearance, DPR and tendering. The Committee strongly recommends that all the stages of processing should be completed as per schedule. 22

3.7 CIVIC ACTION PROGRAMME AND MEDIA PLAN Table 3.11 (` in crore) Actuals B E R E B E 2015-2016 2016-2017 2016-2017 2017-2018 Revenue 46.98 60.30 102.30 70.00 Capital 0 0 0 0

TOTAL 46.98 60.30 102.30 70.00 3.7.1 The overall increase of ` 42.00 crore allocation in RE 2016-17 over BE 2016-17 was done due to additional funds of ` 45 crore required under Jammu and Kashmir Advertisement and Publicity programme for payment of pending bills of implementing agencies and revival of DD Kashir. 3.7.2 The Committee feels that activities under Civic Action Programme and Media Plan can go a long way in ensuring peace in J&K. The Committee, therefore, recommends that all the pending bills of implementing agencies be cleared at the earliest and the Ministry should prepare a revival plan of DD Kashir and earnestly implement it in a time bound manner. Efforts should be made to revive DD Kashir at the earliest. 3.8 CENSUS, SURVEY AND STATISTICS/REGISTRAR GENERAL OF INDIA Table 3.12 (` in crore) Actuals B E R E B E 2015-2016 2016-2017 2016-2017 2017-2018 Revenue 594.39 586.40 647.48 609.57 Capital 0.01 0.20 0.00 25.00

TOTAL 594.40 586.40 647.48 634.57 3.8.1 ` 25.00 crore has been allocated under Capital Head in BE 2017-18 over RE 2016-17 as the Office of Registrar General of India has obtained administrative and expenditure sanction for construction of Office Building of the Office of RGI (Headquarters) at New Delhi and two Directorate of Census Operations (DCO) Offices at Raipur and Guwahati. 3.8.2 The Committee was also provided details of utilisation of funds on various schemes under this head during 2016-17 by the Ministry as under:

Table 3.13 (` in crore)

Sl. No. Head of Accounts B E R E Expenditure Percent under Plan Schemes 2016-17 2016-17 as on utilisation of 15.02.2017 funds

12 3456

1. Improvement in Vital Statistics System 49.25 38.40 22.16 57.70%

2. GIS Based Town Mapping 5.31 0.60 0.04 6.67% 23

12 3456

3. Modernisation of Data Dissemination 0.77 0.43 0.14 32.44% Activity in Census 4. Training Unit in RGI 0.49 0.16 0.00 0.00% 5. Mother Tongues Surveys of India 5.98 1.38 1.07 77.80% 6. National Population Register 208.02 309.66 256.18 82.73% 3.8.3 The Committee takes strong exception to poor utilization of funds by the Ministry under the Head Census, Survey and Statistics/Registrar General of India. In some plan schemes, particularly GIS Based Town Mapping and Improvement in Vital Statistics System, the utilization by mid February, 2017 was quite low. Under the GIS Based Town Mapping scheme, out of the BE allocation of ` 5.31 crore, the Ministry was able to spend only ` 4 lakh and nothing could be spent out of the ` 49 lakh allocated for Training Unit. This shows poor handling of the schemes. The Committee fails to understand such poor utilization of budgetary allocation and feels that the Ministry is not serious about implementing these schemes. The Committee recommends that the Ministry should improve its fund absorption capacity under this head and remove all procedural delays that inhibit the performance of the Division concerned. 3.9 OTHER DISASTER MANAGEMENT PROJECTS Table 3.14 (` in crore) Actuals B E R E B E 2015-2016 2016-2017 2016-2017 2017-2018 Revenue 18.93 31.71 21.14 22.27 Capital 0.00 0.00 0.00 0.00 Total 18.93 31.71 21.14 22.27 3.9.1 The provision under this Head is for Grants-in-aid to State Governments for implementation of Disaster Management Projects including School Safety Programme. The decrease of ` 9.63 crore in RE 2016-17 over BE 2016-17 was observed as projects of Disaster Management, which were to be implemented by all the 36 States and UTs through their respective State Disaster Management Authority (SDMA)/ District Disaster Management Authority (DDMA), had materialized in only 4 States and 1 UT so far. 3.10 HOME GUARD Table 3.15 (` in crore) Actuals B E R E B E 2015-2016 2016-2017 2016-2017 2017-2018 Revenue 36.98 37.00 35.40 26.00 Capital 0.00 0.00 0.00 0.00

TOTAL 36.98 37.00 35.40 26.00 24

3.10.1 The decrease of ` 9.40 crore in BE 2017-18 over RE 2016-17 is due to observations of Comptroller and Auditor General (CAG) on pending bills in terms of Rule 209(6) of GFR which provides that Grant-in-aid to State Governments may be sanctioned to meet the expenditure incurred not earlier than two years prior to the date of issue of the sanction. As per the condition laid down under the rules, the bills for the year 2013-14 are to be reimbursed first before processing the bills for the financial years 2014-15 and 2015-16. In view of this the funds requirement was reviewed by MHA according to the pendency of previous years.

3.10.2 The Committee sought to know the rates of duty allowance and quantum of cash award given by various States to Home Guards. The Ministry replied that Home Guard is a State Subject and duty allowance is paid to the Home Guards by the respective State Governments and it varies from State to State and daily allowance paid by the States is in the range of ` 60 to ` 425.

3.10.3 The Committee is constrained to note the poor state of the Home Guards throughout the country. The Committee is deeply anguished to note that some of the States are paying duty allowance as low as ` 60 per day to the Home Guards. This is despite the Supreme Court's order on increasing the duty allowance of Home Guards to minimum of the pay to which the police personnel are entitled. The Committee is not satisfied with the reply of the Ministry that it does not have details of implementation of the Supreme Court's order by the States. The neglect of this issue by the Ministry is reflective of corresponding neglect of the Home Guards by the States. The Committee, therefore, recommends that the Centre should compile and maintain State-wise data of duty allowance being paid to the Home Guards and strive towards bringing uniformity in the rates of duty allowance paid by the States. The Committee also recommends that the Ministry should direct the States to implement the Supreme Court's order in letter and spirit. 25

CHAPTER - IV

DEMAND NO. 48

4.1 DEMAND NO. 48 - POLICE

4.1.1 Demand No. 48 - Police, contains budgetary provisions for the Central Armed Police Forces (CAPFs), Departmental Accounting Organisation of CAPFs, National Intelligence Grid (NATGRID), Delhi Police, Intelligence Bureau, Bureau of Immigration, Nacrotics Control Bureau, National Investigation Agency, and other Central Police Organizations. Certain other schemes administered by the Ministry of Home Affairs, such as Modernisation of Police Forces, Border Management, Coastal Security, Security Related Expenditure, Special Infrastructure in Left Wing Extremist affected States, Crime and Criminal Tracking Network System (CCTNS), Mission Mode Project on Immigration, Visa and Foreigners Registration and Tracking (IVFRT), Reimbursement to States for deployment of State Police Battalions for election duties in other States, etc. are also included in this Demand. Provisions are also there under this Grant for Welfare Grants of CAPFs, Research, Assistance to Naxal Affected States, etc.

4.1.2 As far as Police Grant is concerned, the allocations under the 'Revenue Section' are predominantly meant for meeting salaries, cost of ration, travel expenses and other office running expenses of the organizations mentioned above and Grants-in-aid to State / UT Governments under various schemes, viz. Modernisation of Police Forces, Security Related Expenditure, etc.

4.1.3 Under the 'Capital Section', budgetary provisions for construction of Residential and Non-Residential buildings by the Police Forces and other Organisations, procurement of motor vehicles, machineries and equipments and creation of infrastructure for securing India's International Borders with neighbouring countries have been made.

4.1.4 The budgetary provision of Demand No. 48 is given in following table:

Table 4.1 (` in crore) Actuals B E R E Actual B E 2015-2016 2016-2017 2016-2017 expenditure 2017-2018 (upto 10.02.2017 123456 Revenue 54626.34 61682.41 64459.31 58085.83 67544.94 Capital 9064.09 9042.17 9508.69 5897.24 11178.36

TOTAL 63690.43 70724.58 73968.00 63983.07 78723.30

4.1.5 The Ministry informed the Committee that an additional outlay of ` 3243.42 crore was provided at RE 2016-17 stage, most of which was to be used for catering to additional requirements under the

25 26 head 'Salaries' in respect of all the organizations. The Ministry also submitted that the enhanced allocation in BE 2017-18, which was higher by ` 7998.72 crore as compared to BE 2016-17 allocation, was mostly due to marginal increases provided under 'Salaries' and other office running expenses along with large additional outlays provided under Modernisation of Police Forces, Security Related Expenditure, Land Port Authority of India, etc.

4.1.6 The Committee notes that only ` 5897.24 crore have been utilized (till 10th February, 2017) under capital head of Demand No. 48 which is only 62% of the amount allocated at RE stage in 2016-17. The Committee apprehends that the Ministry may not be able to utilize the remaining ` 3611.45 crore fully by the end of the current fiscal year. The Committee, therefore, recommends that in future efforts should be made to utilize the outlays fully under capital head, viz., creation of Police infrastructure and also on Revenue Head on Modernisation of Police Forces and SRE.

4.1.7 The details of variations in budgetary allocation under various Schemes/Heads under Demand No. 48 are as follows:

Table 4.2

(` in crore)

Sl. No. Scheme/Head Actuals B E R E Variation of B E Variationof 2015-16 2016-17 2016-17 RE 2016-17 2017-18 BE 2017-18 over BE over RE 2016-17(%) 2016-17 (%) 12 345678 1. Central Armed Police 44669.09 50176.45 52443.85 4.52 54985.11 4.85 Forces 2. Intelligence Bureau 1341.44 1410.45 1525.6 1 8.16 1577.07 3.37 3. NATGRID 15.35 45.00 18.71 -58.42 45.57 143.56 4. Special Protection 276.51 359.55 355.33 -1.17 389.25 9.55 Group (SPG) 5. Delhi Police 4750.11 5657.84 5620.04 -0.67 5910.28 5.16 6. Central Police Organisations 509.00 658.29 628.44 -4.53 706.38 12.40 7. Education, Training & 187.44 277.91 213.16 -23.30 287.13 34.70 Research 8. Criminology Forensic 38.79 61.33 49.61 -19.11 67.56 36.18 Science 9. IVFRT (Immigration, Visa 61.71 60.00 60.00 0.00 66.00 10.00 and Foreigners Registration and Tracking) 27

12 345678 10. Welfare Grant, Aircraft/ 964.88 255.80 204.48 -20.06 343.74 68.10 Riverboat and Misc. items 11. Border Infrastructure & 1907.48 2699.40 1928.51 -28.56 2600.00 34.82 Management 12. Police Infrastructure 3738.62 3265.48 3183.00 -2.53 4447.06 39.71 13. Research 1820.65 2119.88 3652.56 72.30 2983.00 -18.33 14. Assistance for Nepal 0.00 10.30 0.00 -100.00 11.33 - Police Academy 15. Narcotics Control Bureau 434.34 140.00 5.00 -96.43 5.00 0.00 16. Schemes for Safety of 3.23 150.00 250.00 66.67 313.30 25.32 Women 17. Land Port Authority of India 21.23 88.00 88.00 0.00 300.00 240.91 18. India Reserve Battalions 64.40 73.90 76.70 3.79 103.52 34.97 and Reimbursement to States for deployment of Battalions 19. Modernization of Police 1581.35 1685.00 2235.0 0 32.64 2022.00 -9.53 Forces 20. Border Area Development 990.00 990.00 990.00 0.00 1100.00 11.11 Programme

Police TOTAL 63375.62 70184.58 73528.00 4.76 78263.30 6.44

4.1.8 The Scheme/Head-wise details of expenditure in 2016-17 and the projected demand and actual grant in 2017-18 are given in the following table:-

Table 4.3

(` in crore)

B E R E Expenditure B E B E Shortfall 2016-17 2016-17 as on 2017-18 2017-18 in ` crore 15.2.17 (Projected) (Granted) (Shortfall In ` crore in %*) (Utilisation %*)

12 345 6789

1. Central Armed Police Forces

1.01 CRPF 16228.18 16998.07 13903.42 19996.65 17868.53 -2128.12 (81.79%) (-10.64%) 28

12 34 5 6789

1.02 NSG 688.47 721.27 469.20 1132.70 816.10 -316.60 (65.05%) (-27.95%) 1.03 BSF 14652.90 14839.50 12282.59 17094.32 15569.11 -1525.21 (82.77%) (-8.92%) 1.04 ITBP 4231.04 4589.58 3803.66 5508.15 4824.31 -683.84 (82.88%) (-12.42%) 1.05 CISF 6067.13 6463.25 5155.64 7647.58 6686.25 -961.33 (79.77%) (-12.57%) 1.06 AR 4363.88 4641.96 3631.43 5477.81 4801.84 -675.97 (78.23%) (-12.34%) 1.07 SSB 3854.67 4096.06 3388.72 4866.91 4320.67 -546.24 (82.73%) (-11.22%) 1.08 DAO 90.18 94.16 75.41 122.58 98.30 -24.28 (80.09%) (-19.81%)

TOTAL CAPFs 50176.45 52443.85 42710.07 61846.70 54985.11 -6861.59 (81.44%) (-11.09%) 2. IB 1410.45 1525.61 1097.53 1940.57 1577.07 -363.50 (71.94%) (-18.73%) 3. Natgrid 45.00 18.71 11.06 94.97 45.57 -49.40 (59.11%) (-52.02%) 4. SPG 359.55 355.33 222.54 442.41 389.25 -53.16 (62.63%) (-12.02%) 5. Delhi 5657.84 5620.04 4501.63 9757.45 5910.28 -3847.17 Police (80.10%) (-39.43%) 6. Central 658.29 628.44 457.48 843.27 706.38 -136.89 Police (72.80%) (-16.23%) Organi- sations 7. Education, 277.91 213.16 135.80 390.18 287.13 -103.05 Trg and (63.71%) (-26.41%) Research 8. Criminology 61.33 49.61 30.92 97.52 67.56 -29.96 and Forensic (62.33%) (-30.72%) Science

TOTAL Establishment 58646.82 60854.75 49167.03 75413.07 63968.35 -11444.72 Expenditure (80.79%) (-15.18%) 29

12 34 5 6789 9. IVFRT 60.00 60.00 38.42 102.00 66.00 -36.00 (64.03%) (-35.29%) 10. Welfare Grant 255.80 204.48 133.62 402.95 343.74 -59.21 Aircraft (65.35%) (-14.69%) Riverboat and Miscl. 11. Border Infrastructure and Management 11.01 Maintenance 209.40 205.78 118.82 308.75 244.32 -64.43 and Border (57.74%) (-20.87%) Check Post

11.02 Capital 2490.00 1722.73 1655.91 4983.90 2355.68 -2628.22 Outlay (96.12%) (-52.73%) 12. Police Infrastructure 12.01 Building 3012.98 2991.75 2026.16 7118.04 4008.06 -3109.98 Projects of (67.72%) (-43.69%) CAPFs and Central Police Organisation 12.02 Delhi Police 252.50 191.25 104.80 1335.76 439.00 -896.76 (54.80) (-67.13%)

13. Research 2119.88 3652.56 507.04 5575.19 2983.00 -2592.19 (13.88%) (-46.50%) 14. Assistant for 10.30 0.00 0.00 135.00 11.33 -123.67 Nepal Police (0%) (-91.61%) Academy

15. NCB 140.00 5.00 4.00 5.00 5.00 0.00 (80.00%) (0%) 16. Women Safety Schemes 16.01 Nirbhaya Fund 150.00 50.00 26.20 349.15 50.00 -299.15 Transfer (52.40%) (-85.68%) 16.02 NERS 150.00 250.00 0.00 236.35 313.30 76.95 (0%) (32.56%) 16.03 Met from -150.00 -250.00 0.00 -236.35 -313.30 -76.95 Nirbhaya (0%) (32.56%) Fund

TOTAL Central Sector 8700.86 9083.55 4614.97 20315.74 10506.13 -9809.61 Schemes/Project (50.81%) (-48.29) 30

Autonomous Bodies

12 34 5 6789 17. LPAI 88.00 88.00 87.82 707.95 300.00 -407.95 (99.80%) (-57.62%) 18. India Reserve 73.90 76.70 18.90 75.00 103.52 28.52 Battalions and (26.64%) (38.03%) Reimbursement to state for deployment of Battalions Grant Total^ 70184.58 73328.00 55642.12 102249.76 78000.00 -24249.76 (75.88%) (-23.72%)

* Utilisation percentage as compared to RE 2016-17 allocation. ^ These figures do not include the recoveries under Grant No. 48.

ESTABLISHMENT EXPENDITURE OF CAPFS, CPOS AND OTHER ORGANISATIONS

4.2 CENTRAL ARMED POLICE FORCES

4.2.1 This provision is for meeting the expenses related to Establishment charges of Central Armed Police Forces (CAPFs), viz. Central Reserve Police Force, National Security Guards, Border Security Force, Indo-Tibetan Border Police, Central Industrial Security Force, Assam Rifles and Sashastra Seema Bal. The allocation for Infrastructure projects of CAPFs is done under the Head Police Infrastructure. The budgetary provision for Establishment expenditure of CAPFs is given in the following table:

Table 4.4

(` in crore) Actuals B E R E B E 2015-2016 2016-2017 2016-2017 2017-2018

Revenue 43935.04 49208.86 51477.65 53746.10

Capital 734.05 967.59 966.20 1239.01

TOTAL 44669.09 50176.45 52443.85 54985.11

4.2.2 The Ministry informed the Committee that the major increase at RE 2016-17 stage over BE 2016-17 provision was for Salaries of force personnel which have been revised on the basis of the Seventh Central Pay Commission's recommendations. For BE 2017-18 the increased allocation has been provided for procurement of provisioning items which include arms and ammunition, clothing and tentage and IT equipment under the Revenue Section and provisions for Motor Vehicles and Machinery and Equipment under the Capital Section.

4.2.3 Force-wise details of expenditure in 2016-17 (Upto 15th February, 2017) and the projected demand along with shortfall in funds allocated in 2017-18 are given above in Table 4.3. 31

4.2.4 The Committee observes that most of the CAPFs were able to utilize the allocated funds optimally except NSG which was able to utilize only 65% of the funds allocated at RE stage in 2016-17 upto 15.02.2017 for the purpose of Establishment Expenditure. The Committee also notes that the allocation granted to National Security Guards (NSG) in BE 2017-18 is almost 28% short of what was projected by the Ministry. NSG is to be developed as an elite Counter Terrorism agency for which it requires urgent modernization and expansion of its warfare capabilities. This can only be achieved when sufficient funds are allocated and optimally utilized by the Ministry. The Committee points out that in order to justify the demand for higher allocation in the next fiscal, it is pertinent to achieve optimal utilization in the previous financial year. The Committee, therefore, strongly recommends that the Ministry must find out the reasons for lower utilization of allocated fund and review the status of all the pending proposals due to which funds were not utilized fully and clear them at the earliest.

4.3 NATIONAL INTELLIGENCE GRID (NATGRID)

4.3.1 The budgetary provision for Establishment expenditure of NATGRID is given in following table:

Table 4.5

(` in crore) Actuals BE RE BE 2015-2016 2016-2017 2016-2017 2017-2018

Revenue 14.75 27.00 16.21 23.97

Capital 0.60 18.00 2.50 21.60

TOTAL 15.35 45.00 18.71 45.57

4.3.2 The Ministry apprised the Committee about the reasons for decrease of funds provided for Establishment expenditure at RE stage in 2016-17. The BE 2016-17 allocation included a provision of `11.50 crore under Revenue Head in connection with engagement of 35 consultants. These posts were not filled up due to non-availability of qualified professionals for various posts in the organization. The Ministry also informed that `18.00 crore allocated in BE 2016-17 against 'Machinery and Equipment' in the Capital Section included a provision of `15.59 crore for implementation of Entity Extraction, Visualization and Analytics (EVA) System. Since final approval for the system, accorded on 23.01.2017, was not available till the time of finalising RE 2016-17, the allocation for Machinery and Equipment' was reduced to `2.50 crore.

4.3.3 The Committee does not accept the Ministry's contention that non-availability of qualified professionals is the reason behind keeping the posts vacant for such a long time and the consequent surrendering of funds at RE stage. In a country like India which is known worldwide for its highly skilled IT professionals, it is simply not acceptable that the non-availability of professionals was the reason for not filling up the post of 35 consultants. The Committee feels that either the Ministry failed to publicize the posts widely or the remuneration being offered 32 was not attractive enough. The Committee recommends that the Ministry needs to clear the confusion looming large over the NATGRID's future by completing the construction work of its main building at the earliest. Meanwhile, the Ministry must re-publicize the posts as widely as possible along with offering remuneration package commensurate to that being offered in the private sector to attract the most qualified professionals.

4.3.4 The Committee notes that final approval for implementation of Entity Extraction, Visualization and Analytics (EVA) System has been granted in January, 2017. The Committee recommends that implementation of EVA system may now be completed without any further delay.

4.4 CENTRAL POLICE ORGANISATIONS

4.4.1 The provision under this is for the following Central Police Organizations:

(1) National Crime Records Bureau (NCRB),

(2) Bureau of Immigration (BOI),

(3) Narcotics Control Bureau (NCB),

(4) National Investigation Agency (NIA),

(5) Directorate of Coordination - Inter State Police Wireless, 26

(6) Tear Smoke Unit (TSU)

4.4.2 As per the information provided by the Ministry, this provision, given in the following table, is meant for establishment related expenditure as well as for capital expenditure of these organizations.

Table 4.6

(` in crore) Actuals BE RE BE 2015-2016 2016-2017 2016-2017 2017-2018

Revenue 500.52 613.48 616.44 660.71

Capital 8.48 44.81 12.00 45.67

TOTAL 509.00 658.29 628.44 706.38

4.4.3 The Ministry informed that net total decrease of `29.85 crore over BE 2016-17 provision was primarily due to non-approval of some proposals for procurement of machinery and equipment and motor vehicles. The net total increase of `49.09 crore in BE 2017-18 over BE 2016-17 allocation has been provided to meet increased expenditure on account of Salaries, travel expenses, rents and taxes, professional services, etc.

4.4.4 The Committee sought break-up of allocations among various CPOs and actual expenditure during 2016-17 from the Ministry which provided the relevant information as follows: 33

Table 4.7

(` in crore)

Organisation Category BE 2016-17 RE 2016-17 Expenditure BE 2017-18 upto 31st December, 2016

Bureau of Immigration Revenue 312.79 326.12 240.75 336.99 Capital 13.40 2.00 0.58 11.24 TOTAL 326.19 328.12 241.33 348.23

Narcotics Control Revenue 66.71 61.27 44.05 73.84 Bureau Capital 3.90 3.50 1.59 3.00 TOTAL 70.61 64.77 45.64 76.84

National Investigation Revenue 98.83 98.48 71.03 106.64 Bureau Capital 3.05 2.75 0.99 4.50 TOTAL 101.88 101.23 72.02 111.14

Directorate of Revenue 69.01 68.01 51.88 73.13 Coordination (Police Capital 13.25 0.85 0.15 14.60 Wireless) TOTAL 82.26 68.86 52.03 87.73

National Crime Revenue 26.87 28.65 20.64 30.18 Records Bureau Capital 0.08 0.02 -- 0.08 TOTAL 26.95 28.67 20.64 30.26

Tear Smoke Unit Revenue 39.27 33.91 24.11 39.93 Capital 11.13 2.88 0.54 12.25 TOTAL 50.40 36.79 24.65 52.18

Total - Central Police Revenue 613.48 616.44 452.46 660.71 Organisations Capital 44.81 12.00 3.85 45.67 TOTAL 658.29 628.44 456.31 706.38

4.4.5 The Committee is constrained to express its displeasure and observes that most of the CPOs failed to utilize their capital funds optimally. While 73% funds under capital head were surrendered at RE stage in 2016-17, only 32% of the reduced allocation could be utilized by all the CPOs due to non-approval of various proposals for procurement of machinery, equipment and motor vehicles. The Committee is anguished to find the insincere approach adopted by the CPOs towards creation of capital assets and strongly recommends that Ministry of Home Affairs must introspect about the reasons for non-approval of various proposals. The Committee cautions that in the upcoming fiscal, capital funds should be spent optimally and the funds allocated should not remain underutilised due to procedural delays. 34

4.5 CRIMINOLOGY FORENSIC SCIENCE

4.5.1 The provisions under Revenue and Capital heads cater to the establishment related expenditure needs of the Central Forensic Science Laboratories (CFSL) including a dedicated laboratory for CBI and the Directorate of Forensic Sciences. These agencies provide forensic investigative reports to various crime investigative agencies, police forces, etc. The budgetary provision for Criminology Forensic Science Head is given in the following table:

Table 4.8

(` in crore) Actuals BE RE BE 2015-2016 2016-2017 2016-2017 2017-2018

Revenue 36.75 45.04 44.35 47.98

Capital 2.04 16.29 5.26 19.58

TOTAL 38.79 61.33 49.61 67.56

4.5.2 The Ministry informed that net total decrease of `11.72 crore in RE over BE 2016-17 provision was primarily due to the fact that some of the laboratories were scheduled to be upgraded and proposals for procurement of lab equipment were yet to be approved.

4.5.3 The Committee cannot understand why allocation to the tune for ` 11.72 crore remained un-utilized under the capital head in RE 2016-17 which was earmarked for upgrading laboratories of criminology forensic science Head. The Committee recommends that Ministry should strive to create and upgrade forensic capabilities of premier investigation agencies and grant prompt approvals for such purposes. There should be no such under utilisation.

4.6 BORDER INFRASTRUCTURE AND MANAGEMENT

4.6.1 This provision is for maintenance of border infrastructure along India-Bangladesh, India-Pakistan and India-China borders, various construction activities at India's International Borders with its neighbouring countries, Construction of Border Out Posts and Coastal Security.

Table 4.9

(` in crore) Actuals BE RE BE 2015-2016 2016-2017 2016-2017 2017-2018

Revenue 160.14 209.40 205.78 244.32

Capital 1747.34 2490.00 1722.73 2355.68

TOTAL 1907.48 2699.40 1928.51 2600.00 35

4.6.2 The construction activities include erection of barbed wire fencing, construction of roads, construction of O.P. Towers, flood lighting, induction of Hi-Tech Surveillance equipments and development of infrastructure at India's International Borders with its neighbouring countries.

4.6.3 The Ministry informed that the net total decrease of `770.89 crore in RE over BE 2016-17 provision was primarily due to the fact that boats for coastal security could not be procured as scheduled because of lack of competition in the tender process and due to slow progress of works in certain sectors because of harsh weather conditions, hostile terrain, etc. The Ministry further informed that lower allocation was granted in BE 2017-18 due to estimated cost of procurement of boats being less and consequent reduction in outlay for coastal security.

4.6.4 The Committee observes with concern that the Ministry was unable to procure the boats for coastal security as per the schedule. The Committee is aware that the Ministry was unable to implement Phase -II of the Coastal Security Scheme on time and it has been granted extension for 4 years till March, 2020. This is a total failure on the part of the Ministry in not completing Phase - II and this is compounded by the under utilisation of funds again this year. The Committee cautions the Ministry that foolproof coastal security is sine qua non for overall security of the country and if the Ministry keeps on procrastinating on the implementation of security related projects and does not procure items on time, it may not be able to complete this phase of CSS even within the extended timeline. The Committee, therefore, strongly recommends that implementation of Coastal Security Scheme may be undertaken with utmost priority and the Ministry should complete the pending procurement of boats within the first half of the upcoming fiscal year.

4.6.5 The Ministry also apprised the Committee about the detailed status of all infrastructure projects and fund utilization along various International borders of India as under:

INDIA-CHINA BORDER

4.6.6 The Government has decided to undertake construction of 27 road links totaling 804.93 Kms. in the border areas along India-China border in the States of Jammu & Kashmir, Himachal Pradesh, Uttarakhand, Sikkim and Arunachal Pradesh at an estimated cost of `1937 crore. Out of 27 roads, 8 roads have been completed and work is in progress on 19 roads.

FINANCIAL TARGETS/ACHIEVEMENT DURING TWELFTH FIVE YEAR PLAN:-

Table 4.10

(` in crore)

Sl. No. Year Budget Estimate Revised Estimate Funds released 1. 2012-13 200.00 270.00 270.00 2. 2013-14 300.00 215.00 176.75 3. 2014-15 367.00 156.40 153.00 4. 2015-16 300.00 399.00 399.00 5. 2016-17 (upto 250.00 228.24 206.01 20.01.2017) 36

Physical Targets/achievement during Twelfth five year Plan:-

Table 4.11

Sl. No. Year Physical Progress Target (in Kms.) Achieved (in Kms.)

1. 2012-13 Formation 85 84.69

Surfacing 40 29.65

2. 2013-14 Formation 60 29.81

Surfacing 80 76.35

3. 2014-15 Formation 49.80 19.50

Surfacing 120.50 34.92

4. 2015-16 Formation 50.00 42.66

Surfacing 45.00 54.76

5. 2016-17 Formation 48.98 33.80

(upto 20.01.2017) Surfacing 105.45 55.85

INDIA-NEPAL BORDER

4.6.7 Government of India has approved a proposal on 18-11-2010 for construction/upgradation of total length of 1377 km. of border roads along India-Nepal Border at an estimated cost of `3853 cr. (173 km. in Uttarakhand for `530 cr., 640 km. in Uttar Pradesh for `1621 cr. and 564 km. in Bihar for `1702 cr.). Work is being done by the States through their Public Work Departments.

4.6.8 Financial Targets/Achievements during Twelfth Five Year Plan:

Table 4.12

(` in crore)

Sl. No. Year Budget Estimate Revised Estimate Fund released

1. 2012-13 300 100 38.85

2. 2013-14 890 750 750

3. 2014-15 500 0.50 0.50

4. 2015-16 300 200 162

5. 2016-17 283 231.57 231.57 37

4.6.9 Physical Target/Achievement during Twelfth Five Year Plan:

Table 4.13

(` in crore)

Sl. No. Year Physical Progress /Target /Achievement

1. 2012-13 DPRs were prepared and submitted to CPWD for evaluation by the Technical 2. 2013-14 Committee and thereafter approval of HLEC during the years 2012-2014 and 3. 2014-15 construction work of the border roads started during 2014-15 only. So far 177.33 4. 2015-16 km. of formation and 35.75 km. surfacing work in Bihar, 88.06 km. of formation and 5. 2016-17 45.21 surfacing work in Uttar Pradesh and 12 km. of surfacing work border roads in Uttarakhand has been completed. Further construction work is in progress.

INDIA-BHUTAN BORDER

4.6.10 Government of India approved a proposal in 2010 for construction/upgradation of 313 km. length of border roads in Assam along India-Bhutan Border at an estimated cost of ` 1259 crore. The Ministry informed that the project was yet to commence as State Government of Assam had expressed its inability to fund the land acquisition and statutory clearances. Meanwhile, ` 9.88 crore were released to PWD, Assam for preparation of Detailed Project Report (DPR) which along with detailed proposal was still awaited from State Government of Assam.

INDIA-MYANMAR BORDER

4.6.11 The Ministry apprised that Assam Rifles had submitted a revised proposal for construction of 1718 Km. of roads (upgradation of 1415 km. of existing roads and construction of 303 Km. of new roads and 21 helipads) along India-Myanmar Border. This proposal was reviewed by MHA in May, 2016 and Assam Rifles was asked to outline the requirement of roads as per their deployment clearly delineating the distance upto/nearer the zero line. Assam Rifles then prepared a comprehensive proposal on border roads/helipads keeping in view the above requirement and the same was under submission with Directorate General of Military Operation (DGMO)/Army for their operational clearance/endorsement. After the operation clearance from DGMO, the proposal will be further processed in MHA for preparation of DPRs.

INDIA-BANGLADESH AND INDIA-PAKISTAN BORDER

4.6.12 The Committee was informed that for the purpose of erection of barbed wire fencing and construction of roads along India-Bangladesh border, out of the plan allocation of `1418.97 crore an amount of `887.79 crore (62.56%) was spent during the Twelfth FYP (up to 31.12.2016). Under Phase- II of the project, total 2468 km. fence was sanctioned out of which 1875 km. fence had been completed and work on 90.6 km was in progress. Similarly, out of 1512 km. of sanctioned roads, 876.74 km. roads had been completed and work was under progress in 382.021 km of roads.

4.6.13 For the purpose of floodlighting on India-Bangladesh Border, the Ministry informed that, out of the plan allocation of `895.58 crore, an amount of `738.68 crore (82.48%) was spent on this scheme 38 during the Twelfth FYP (up to 31.12.2016). Cabinet Committee on Security had approved the proposal for installation of floodlighting along IBB over 2840 km. at a cost of `1327.77 crore in November, 2007 which was revised to 2617.6 km. in October, 2016. Out of the revised length, 2089 km. had been completed and work in 207.01 km. was in progress.

4.6.14 On the progress of construction of Border Out Posts (BOPs) on India-Bangladesh and India- Pakistan Borders, the Committee was informed that out of the plan allocation of `987.69 crore, an amount of `858.96 crore (86.96%) was spent on this scheme during the Twelfth FYP (up to 31.12.2016). The CCS had approved the construction of 509 BOPs along IBB and IPB at a cost of ` 1832.5 crore in year 2009. CCS then revised the scope of project from 509 BOPs to 422 BOPs and cost of project from `1832.5 Cr. to `2494.76 Cr. Out of this revised target, 326 nos. of BOPs were to be constructed along IBB and 96 BOPs along IPB. As on 31.12.2016, 97 BOPs had been completed and work was in progress in 207 BOPs along IBB. Similarly, 76 BOPs had been completed and work is in progress in 14 BOPs along IPB.

4.6.15 For the purpose of erection of Barbed Wire Fencing and Wire Obstacles on India-Pakistan Border, out of the Twelfth FYP allocation of `123.88 crore, an amount of `342.35 crore (276.35%) was spent on the scheme (up to 31.12.2016). CCS had approved construction of 340 km. of border roads, fencing and floodlighting, 70 BOPs and 137 km. of link roads in the State of Gujarat along IPB at an estimated cost of ` 1201 crore. Out of the above sanctioned targets, 280 km. of fence and roads were constructed along with 137 km. link roads and 293 km. of floodlights and 56 Nos. of BOPs.

4.6.16 The Ministry informed that for construction of Roads on India-Pakistan Border, out of the plan allocation of `174.46 crore an amount of `314.16 crore (180.07%) was spent on the scheme during the Twelfth FYP (up to 31.12.2016). In March, 2011 CCS also approved construction of Earthen Bund, metalled road and Naka-Cum-Machan-Cum Fighting Bunkers along the home side of existing security fence (including land acquisition of 135 ft. wide strip) over 179 km. length of border at an estimated cost of `341 crore in Jammu sector along IPB. As on 31.12.2016 an amount of `40.41 crore had been released for Land acquisition for the project. Construction of 255 km. of Gadhuli-Santhalpur road was started in Kutchh and Patan districts in Gujarat State, along the India-Pakistan border, out of which construction of 195 km. roads was completed.

4.6.17 For provision of floodlight on India-Pakistan Border, out of the plan allocation of ` 149.15 crore, an amount of ` 45.69 crore (30.63%) was spent on this scheme during the Twelfth FYP (up to 31.01.2016). CCS had approved construction of 340 km. of floodlighting in the State of Gujarat along IPB at an estimated cost of ` 192 crore out of which 293 km. of floodlights had been completed.

4.6.18 The Chairman of the Committee, during the meeting for examination of DFG, sought the reasons for the extremely slow and tardy progress on construction of border fencing from the Ministry of Home Affairs wherein only 33 km. of fencing could be constructed in 2016-17 (upto 31.01.2017). The Chairman also desired to know as to what ware the problems faced in construction of fencing in India- Bangladesh Border which was a flat land unlike the tough terrains of India-Pakistan Border. The representative of the Ministry replied that the issues of land acquisition and public protests were the main reasons for this slow progress. 39

4.6.19 The Committee is concerned at the state of affairs of construction/upgradation of infrastructure along India-Nepal Border (INB). In Bihar part of INB, only 19.1 km. of roads were constructed throughout the year, while only 21.3 km. of roads were completed in Uttar Pradesh. The Ministry took the plea of pending land acquisition as the reason for this extremely slow pace of construction. The Committee feels that if pace of road construction does not improve then it would take a decade more to complete the construction of roads along INB. The proposal was approved long back in 2010. The Committee is surprised to note that even such important border infrastructure projects are delayed due to the problem of land acquisition and yet the Ministry failed to find a solution to this persistent problem that plagues almost all the border infrastructure projects throughout the country. The Committee feels that the Ministry needs to find a permanent solution to the problem of land acquisition in border areas in the national interest. The Ministry may hold meetings with all the Governments of Border States where land acquisition has delayed implementation of projects and make all out efforts to find a permanent solution to this problem.

4.6.20 The Committee is anguished to note that out of the plan allocation of ` 1418.97 crore for border fencing and roads construction along India-Bangladesh border, during Twelfth Five Year Plan, only ` 887.79 crore (62.56%) of the plan allocation could be spent. The Committee was also dismayed to observe the extremely tardy progress of border infrastructure projects with completion of only around 15 km. of fencing, 26 km. of roads, 46 km. of flood lights and just 11 border outposts during 2016. The Committee is aware of the issues that affect construction projects along India-Bangladesh border; however, the inability of the Ministry to resolve these issues for so long seems unjustifiable. Even the Supreme Court expressed its strong displeasure at the manner in which border fencing projects languish along IBB and lack of any specific plan of the Ministry to complete it. The Committee, therefore, recommends that the Ministry should chalk out a strict and specific plan, while adhering to the timeline stipulated by the Supreme Court, for completion of all the infrastructure projects along IBB and devote its sincere efforts to plug all the gaps on the border that were still being exploited for illegal cross border influx and smuggling.

4.7 BORDER AREA DEVELOPMENT PROGRAMME

4.7.1 This provision is for providing grants to 17 States located along India's International Borders with the main objective of meeting the special developmental needs of the people living in remote and inaccessible areas situated near the International border.

Table 4.14

(` in crore) Actuals B E R E B E 2015-2016 2016-2017 2016-2017 2017-2018

Revenue 990.00 990.00 990.00 1100.00

TOTAL 990.00 990.00 990.00 1100.00 40

4.7.2 The Committee desired to know the status of implementation of Border Area Development Plan (BADP) from the Ministry which submitted that BADP was being implemented in approximately 394 border blocks of 110 border districts of 17 States which constitute International land borders with neighbouring countries. Allocation for the BADP for the Twelfth FYP was `7230 crore. However, financial and physical targets under the BADP were fixed on annual basis. Since, the schemes/projects are planned and executed by the State Governments the physical targets were also fixed by the State Governments. However, financial targets were fixed by the Central Government (MHA).

4.7.3 The Ministry also submitted the details of funds utilized by the State Governments under the BADP on the schemes in various sectors during the last three years as under:

Table 4.15

(` in crore)

Sector Year 2013-14 2014-15 2015-16 Road, bridges etc. 540.47 408.87 404.58 Education 107.97 58.61 79.41 Health 44.34 23.77 53.52 Social infrastructure 71.73 98.18 208.28 Power 1.35 6.08 11.60 Agriculture and allied sectors 3.95 54.80 58.57 Skill development 42.70 37.97 1.99 Security 83.60 76.02 97.20 Miscellaneous (including administrative 93.89 35.70 74.85 expenditure on monitoring etc.)

TOTAL 990.00 800.00 990.00

4.7.4 The Committee notes that a major chunk of BADP funds are being spent on construction of roads, bridges and social infrastructure. Though infrastructure creation is important for overall development of border areas, however, this must not come at the neglect of other areas of development, particularly education, health and skill development. The Committee recommends that Ministry of Home Affairs should review the Annual Plans of States for spending BADP funds and guide them towards incurring expenditure in a broader arena so that no area of development gets neglected.

4.8 POLICE INFRASTRUCTURE

4.8.1 The Ministry informed that this provision was for construction of Residential and Non-residential buildings by CAPFs, NATGRID, Intelligence Bureau, Police Training Institutes, Narcotics Control Bureau and Delhi Police. 41

Table 4.16 (` in crore) Actuals BE RE BE 2015-2016 2016-2017 2016-2017 2017-2018 Capital 3738.62 3265.48 3183.00 4447.06

TOTAL 3738.62 3265.48 3183.00 4447.06 4.8.2 The Ministry informed that the marginal decrease of `82.48 crore in RE over BE 2016-17 provision was due to slow progress of works under Office Building project of Narcotics Control Bureau and under the Public Private Partnership project of Delhi Police. The increase of `1181.58 crore in BE 2017-18 over BE 2016-17 provision was provided to sustain the increased pace of construction works in respect of all the organizations involved. An amount of `4008.06 crore has been provided to CAPFs and other Police Organisations as against `3012.98 crore during the current year and Delhi Police has been provided `439.00 crore as against `252.50 crore during the current year. INFRASTRUCTURE FOR CAPFS INCLUDING ASSAM RIFLES AND NSG 4.8.3 The Ministry provided the details of budgetary allocations for the years 2016-17 and 2017-18 and expenditure for the year 2016-17 under this head as follows: Table 4.17 (` in crore) 2016-17 Budget Head BE RE Expenditure BE 2017-18 upto 27.1.17 OB Plan 1689.82 1615.10 1222.21 1919.03 RB Plan 901.53 986.52 763.07 1591.00

TOTAL 2591.35 2601.62 1985.28 3510.03 4.8.4 The Ministry, in its background note, also submitted the following details pertaining to financial and physical targets and achievements made under Residential (RB Plan) and non-residential (OB Plan) buildings during the Twelfth FYP period as under: Table 4.18 (` in crore) Financial Year Revised Estimates Expenditure Per cent Achievement 2012-13 2988.86 3053.25 100 2013-14 2136.59 2166.83 100 2014-15 1893.04 1940.53 100 2015-16 2929.29 2668.61 91 2016-17 (as on 2601.62 1931.09 74 18.01.17)

TOTAL 12549.40 11760.31 94 42

Table 4.19

(` in crore)

Sl. Name of Schemes/ 2016-17 12th FYP period No. Object Head (upto 31.12.16) (upto 31.12.16)

Target in no. Achievement Target in Achievement of units in no. of units no. of in no. of (percent) units units (percent)

1. Houses under Residential 4660 1347 24206 13231 Building (Plan) (29%) (54.6%)

2. Barracks under Official 77 37 438 370 Building (Plan) (48%) (84.4%)

Grand Total 4737 1384 24644 13601 (29%) (55%)

4.8.5 The Ministry of Home Affairs apprised the Committee that ` 1181.58 crore of additional fund has been provided under police infrastructure head to sustain the increased pace of construction work in respect of all the organisations involved. The Committee, in view of the Ministry's submission, recommends that the increased pace of construction must be maintained in the next fiscal year and complacency should not creep in. The Committee hopes that the Ministry would be able to judiciously utilize the enhanced allocation for the intended purpose within the stipulated timeframe.

4.8.6 The Committee expresses its concern over the non-achievement of physical and financial targets on the front of constructing Residential buildings under the police infrastructure head. Only 1347 houses were constructed against the target of 4660 which is just 29% during the first three quarters of 2016-17. Even the pace of constructing barracks is far short of the annual target as only 37 barracks have been completed against the target of completion of 77 barracks. This is inconsistent with the Ministry's argument that additional funds were required due to increased pace of construction work. The Committee also notes that out of the targeted 24644 residential and non-residential buildings to be built during the 12th Five Year Plan period, only 13601 were constructed. Thus, the achievement of only 55% of the set target during the 12th FYP is unjustified and reflects overwhelming underperformance of the Ministry. The Committee, therefore, recommends that all the projects under this head must be fast tracked and completed at the earliest without any further delay. There should be an effective monitoring mechanism in place.

4.8.7 The Committee notes that less than one-third physical target was achieved after spending more than two-thirds of the funds allocated. This is indicative of a sorry state of affairs as actual expenditure percentage does not correspond with the percentage of physical achievement. The 43

Committee feels that wasteful expenditure, unrealistic planning and imprudent budgeting could be the likely reasons for this anomaly. The Committee, therefore, recommends that the Ministry must look into this anomaly and examine the factors responsible behind this inconsistency between the physical and financial achievement of targets and adopt a more realistic planning and prudent budgeting for the set targets in future.

4.9 DELHI POLICE

4.9.1 The Ministry apprised the Committee about the budgetary allocation for Delhi Police in its presentation before the Committee during the Committee's meeting held for consideration of Demand No. 48:

Table 4.20

(` in crore)

BE 2016-17 RE 2016-17 Variation of BE Variation of RE 2016-17 2017-18 BE 2017-18 w.r.t BE w.r.t RE 2016-17 2016-17

Revenue 5524.63 5502.22 -0.41 5755.60 4.61

Capital 385.71 309.07 -19.87 593.68 92.09

Total 5657.84 5620.04 -1.68 6349.28 9.26

4.9.2 Against a total projection of ` 11093.21 crore in B.E. 2017-18, an amount of only ` 6349.28 crore has been allocated. The Ministry informed that the shortfall in allocation of `4743.93 crore was mainly under the heads Salaries, Cost of Ration, Professional Services, Machinery and Equipment, Office Expenses and Minor Works.

4.9.3 The Ministry also submitted details of outstanding bills of Central Armed Police Forces (CAPF) and State Police Forces deployed in NCT of Delhi for law and order duties, to the tune of ` 1659.81 crores, which were to be incurred by Delhi Police and some of which are pending since 2005.

4.9.4 The Committee is worried as to how Delhi Police will be able to manage its operations efficiently with such a huge shortfall of ` 4743.93 crore in allocation in BE 2017-18 as compared to the projected demand to the tune of ` 11093.21 crore. The Committee recommends that the Ministry should direct Delhi Police to utilize the allocated amount judiciously and subsequently pursue the Ministry of Finance for additional allocation at RE stage to offset this huge shortfall. 4.9.5 The Committee is constrained to observe that Delhi Police has outstanding bills of ` 1659.81 crores to be paid to CAPFs and Police Forces of other States deployed in NCT of Delhi for law and order duties. The situation seems even more worrisome when one looks at the fact that some of these bills are pending since 2005. The Committee feels that this is because of lackadaisical approach of the Ministry towards clearing the dues. Most of the bills pending are of CAPFs and the Ministry has to just adjust these funds from the head of Delhi Police to those of CAPFs. The Committee fails to understand why these bills have been allowed to languish 44 unsettled for such a long period. The Committee, therefore, strongly recommends that all the outstanding bills to be paid by Delhi Police to other Police Organizations should be cleared without any further delay by projecting an allocation for this settlement at RE stage in 2017-18. 4.9.6 The Committee also enquired the Ministry regarding the Scheme-wise financial targets fixed and achieved during 2016-2017. The Ministry submitted the following details in its reply: Table 4.21 (` in crore) Financial Target Fixed Sl. Name of Sub- Sub-Head B.E. R.E. Financial No. Scheme Scheme 2016-17 2016-17 Target Achieved (Upto 31.12.16) 12 3 4 5 6 7 1 Modernisation of Road Safety Office Expenses 22.00 7.00 2.87 Traffic and Cell Advt. and Publicity 9.00 12.00 9.00 Communication Minor Works 4.00 3.00 1.64 Network of Total 35.00 22.00 13.51 Delhi Police. Developing Traffic and Communication 4.00 4.00 1.66 Network in NCR/Mega Cities and Model Traffic System. Traffic Signals/ Blinkers 5.00 4.00 2.42

TOTAL All Three Sub-Schemes 44.00 30.00 17.59 2 Induction of Latest Induction of Latest Technology 0.50 0.41 0.41 Technology and in Delhi Police Capacity Building Up-Gradation of Training in 3.00 2.21 2.20 Delhi Police

TOTAL 3.50 2.62 2.61 3 Delhi Police Office Buildings 166.50 158.95 67.42 Building Residential Buildings 30.00 30.00 6.14 Programme

TOTAL 196.50 188.95 73.56 4 Public Private P.P.P 56.00 2.30 0.34 Partnership

GRAND TOTAL 300.00 223.87 94.11 Scheme for Safety of Women 3.40 3.40 0.15 (Financed from Nirbhaya Fund) 45

4.9.7 The Committee takes a serious note of the extremely low allocation being provided for the especially important Scheme of Modernisation of Traffic and Communication Network of Delhi Police. The Committee wonders how the task of developing an efficient traffic management and communication Network in a city like Delhi is possible with the meagre amount of ` 1.66 crore. The Committee feels that such low allocation cannot even give a decent head-start to this Scheme if Delhi Police plans to implement it in letter and spirit. The Committee recommends that Delhi Police should prepare a detailed plan to improve the traffic management and communication network in Delhi including modernisation and technology. The Ministry should seek allocation at RE stage for this purpose.

4.9.8 The Committee is disappointed to observe the poor achievement of financial targets by the Delhi Police. Under all the Schemes, including Scheme for Safety of Women, substantial part of funds allocated in BE 2016-17 were surrendered at RE stage presumably due to poor expenditure in the first half of 2016-17. Even then, the utilization of funds remained poor and a mere 42% of RE allocation was utilised by the end of December, 2016. Delhi Police needs to realize the importance of these Schemes which are essential for developing Delhi as a safe and convenient place to live. The Committee feels that Delhi Police's failure to utilize even such low amounts of funds points to a serious lack of capacity for fund utilization. The Committee, therefore, recommends that the division concerned in MHA should periodically review the financial performance of Delhi Police based on which the Ministry should make efforts towards improving the fund utilization capacity of Delhi Police.

4.10 MODERNIZATION OF POLICE FORCES

4.10.1The provision for the Umbrella Scheme 'Modernisation of Police Forces' comprises allocations for the schemes:

(i) Modernisation of State Police Forces

(ii) Crime and Criminal Tracking and Network (CCTNS)

(iii) Special Infrastructure Scheme for Left Wing Affected Areas

(iv) Reimbursement for Security Related Expenditures (SRE) incurred by Jammu and Kashmir, North Eastern States and Left Wing Extremism affected States.

4.10.2The budgetary provision for Modernization of Police Forces is given in the following table:

Table 4.22

(` in crore) Actuals B E R E B E 2015-2016 2016-2017 2016-2017 2017-2018

Revenue 1581.35 1685.00 2235.00 2022.00

Total 1581.35 1685.00 2235.00 2022.00 46

4.10.3 The Ministry informed the Committee that an additional allocation of `550.00 crore was provided at RE stage in 2016-17 for meeting expenditure on SRE claims in respect of Jammu and Kashmir while an additional allocation of `337.00 crores was provided in BE 2017-18 over BE 2016-17 in respect of all components of the Umbrella scheme, except CCTNS. The releases to State / UT Governments under the scheme CCTNS is to end on 31.03.2017 and, therefore, no allocation has been made for the purpose for the year 2017-18. Only an amount of ` 31 crore has been earmarked for CCTNS to incur expenditure on operations and maintenance phase of the scheme.

4.10.4 The Committee sought to know the status of CCTNS and MoPF Schemes from the Ministry. In its response the Ministry stated as under:

4.11 CCTNS

4.11.1 The scheme of CCTNS, has been extended up to March 2017 for implementation and up to March 2022 for Operation and Maintenance(O&M) of the project at a total expenditure of ` 2,000 crore. Out of this amount, till 31.3.2016, ` 1299 crore were released. Out of the remaining projected outlay of ` 701 crore, ` 250 crore was allocated for the year 2016-17. For the period from 2017-18 to 2021-22, total outlay approved is ` 154.37 crore, which comes to be ` 30.87 crore per year. ` 31 crore has been allocated in 2017-18 under the scheme.

4.12 MODERNISATION OF POLICE FORCES (MoPF)

4.12.1 For scheme of MoPF, as against allocation of ` 595 crore during 2016-17, the allocation for 2017-18 is of ` 769 crore. So far as MoPF scheme is concerned, approval for its continuation beyond 31.03.2017 is under consideration as part of umbrella scheme of Modernisation of Police Forces. In anticipation of CCS's approval, for 2017-18, the projected demand was of ` 2460 crore, which was in line with the proposal under consideration.

4.12.2The Ministry also provided the details of allocations made for CCTNS and MoPF Schemes during the 12th FYP as under:

Table 4.23 (` in crore) Year CCTNS MoPF Plan NonPlan Total 12 3 45 2012-13 37.22 NIL 300.00 300.00 2013-14 134.95 1097.00 245.62 1341.62 2014-15 266.82 860.00 537.50 1397.50 47

12 3 45 2015-16 420.29^ NIL 595.00 595.00 2016-17 250.00 NIL 595.00 595.00

2017-18 31.00 769.00*

* Plan and Non-Plan distinction removed from 2017-18 ^ ` 410 crore was allocated by M/o Finance through Grant No. 37 in progress to release the allotted fund to all the States/UTs.

4.12.3The Committee is constrained to note the trend of declining allocations under the Modernisation of Police Forces Scheme for the States. As compared to ` 1341.6 crore in 2013- 14 and ` 1397.5 crore during 2014-15 only ` 595 crore was allocated during 2015-16 and 2016- 17. This trend of reduced allocation under the scheme has come despite various evaluation studies and impact assessment reports highlighting the positive difference the scheme has created in improving the operations and infrastructure of State police forces throughout the country. Though the allocation for 2017-18 has been increased to ` 769 crore, the Committee feels that it is still not sufficient to meet the needs of modernizing the State Police Forces. The Committee warns that if the Central Government ignores the urgent need to modernize the State Police Forces, it would be at the cost of the nation's security and recommends that the Ministry should make all out efforts for obtaining approval of Cabinet Committee on Security (CCS) for continuation of this scheme beyond 31st March, 2017 and its sincere implementation.

4.12.4The Committee notes that no funds were granted under the plan head of Modernisation of Police Forces Scheme, which provides for police infrastructure and training purpose, during the last two years. The Committee was apprised by the Home Secretary that the primary reason for less allocation for funds under this scheme was the misuse of non-plan funds meant for mobility, communication, weapons and equipments by the States for procuring a huge number of vehicles. The Committee feels that in such a scenario, the logical step would have been to either curtail non-plan funds or issue directions to States allowing only a small part of funds for procuring vehicles. However, non-allocation of any plan funds during the last two years does not seem to be justifiable. The Committee is unable to understand as to why this blatant misuse occurred in the first place despite MHA releasing funds after obtaining utilisation certificates from the States. The Committee, therefore, recommends that the Ministry should prepare detailed guidelines under this Scheme, if and when approval is granted for its continuation, and initiate appropriate measures to check this misuse by limiting the amount of funds that can be used for any single purpose where misuse can occur. The Committee also recommends that the Ministry should encourage expenditure on weapons, infrastructure projects and communication and forensic equipment and henceforth provide more funds for capital expenditure while directing the States to manage the revenue expenditure from their own contributions under this scheme. 48

4.12.5The Ministry also submitted the details of the proposed Umbrella Scheme along with the proposed outlays:

Table 4.24

(` in crore)

Total for four years 2016-20 Total Sl. Scheme Vertical/Sub- Approval Original EFC/CNE's Proposed Size No. Scheme/Component sought for proposal Recommen- for approval including the scheme dation of CCS State's share 12 34567

I.Modernization of Police Forces of States and UTs

Central sector sub-schemes (100% centre)

(i) CCTNs (Already approved Inclusion in the 701 701 701 701 by the Cabinet upto umbrella scheme 31.3.2022

(ii) Projects under Inter-State Continuation 48.50 48 48 48 Police Wireless

(iii) NATGRID Continuation 227 Nil 227 227

State Section sub-schemes (60:40/90:10)

(i) Assistance to States Continuation 9812.59 2761.00 9812.59 16355 for Modernization of Police

(ii) Upgradation of Civil Revival 196.80 Nil 196.80 328 Defence Setup

(iii) Modernisation of Fire and Revival 1146.00 750 750 1250 Emergency Services

(iv) Upgradation of security Revival 750.00 750 750 1250 infrastructure of Prisons

(v) Assistance to States for New sub-scheme 1000.00 587 587 587 Special Projects/programmes for upgrading Police infrastructure

Total (Scheme-I) 13881.89 5597 13072.39 21138.00 49

12 34567 II. Security Related Expenditure (SRE) for Jammu and Kashmir(J&K), North-East (NE) and Left Wing Extremism(LWE) Areas Central sector sub-schemes (100% centre) (i) Assistance to Central Continuation 200 200 200 200 Agencies for LWE Management (ii) Civic Action Plan(CAP) Continuation 80 80 80 80 (iii) Media Plan(Advertising Continuation 30 30 30 30 & Publicity) (iv) Special Central Assistance New sub- 4000 Nil 4000 4000 (SCA) to 35 worst affected scheme LWE districts (v) SRE (LWE) Continuation 2340 2340 2340 2340 (vi) SRE (J&K) : R&R Continuation 7055.75 2200 2200 2200 (vii) SRE (J&K) : UDAAN Continuation 565 565 565 (viii) SRE (J&K): Security Continuation 56 56 56 Environment State Sector sub-schemes (60:40/90:10) (i) SRE (J&K) : Police Continuation 2460 2460 2740 (ii) SRE (NE) Continuation 1800 1620 1620 1800 (iii) Special Infrastructure Revival 713.40 712 712 1189 Scheme (SIS) along with construction of 250 fortified Police Stations in LWE affected States (iv) Reimbursement to States Continuation 84 84 84 84 for administration of Central Acts and Regulations Total (Scheme-II) 16303.15 10347 14347 15290 Grand Total for the 30,185.04* 15,944 27,419.39 36,428 Umbrella Scheme

* Where continuation is proposed, the implementation period of project will be till 2020 unless otherwise specified.

4.12.6The Committee hopes that the Cabinet Committee on Security will take a broad view of necessity of Modernisation of Police Forces and approve the Umbrella Scheme on Modernization of Police Forces of States and UTs and Security Related Expenditure (SRE) for J&K, North-East and Left Wing Extremism (LWE) Areas. The Committee, therefore, recommends that the Ministry should continue pursuing this matter and seek an early approval of CCS so that implementation of Scheme can be started from the forthcoming fiscal itself. 50

CHAPTER - V

UNION TERRITORIES

5.1 OVERALL ASSESSMENT

5.1.1 The Demands for Grants (Nos. 49-55) relate to the seven Union Territories (UTs) of the country. Out of these the first five relate to UTs without Legislature, namely Andaman and Nicobar Islands (Gr. No. 49), Chandigarh (Gr. No. 50), Dadra and Nagar Haveli (Gr. No. 51), Daman and Diu (Gr. No. 52) and Lakshadweep (Gr. No. 53). The remaining two Grants relate to Transfer to Delhi (Grant No. 54) and Transfer to Puducherry (Grant No. 55).

5.1.2 The Ministry clarified to the Committee that though provisions for the Union Territories without Legislature form part of the Demands of the Ministry of Home Affairs, various programmes/schemes are the subject matter of different Ministries, which are responsible for scrutinizing, sanctioning and implementing the schemes/projects falling under their purview. The Grant No. 54 and 55 are in the form of Grants and Loans that covers Assistance to Union Territories of Puducherry and Government of NCT of Delhi. The Ministry informed that in respect of these two grants, MHA releases the Grants on quarterly basis and has a limited role in scrutinizing, sanctioning and implementation of the schemes/projects in respect of these UTs.

(A) Union Territories Without Legislature

5.1.3 The overall Budget Estimate and Expenditure (as on 31st January, 2017) for the year 2016-17 pertaining to the five UTs without legislature has been given in the following table:-

Budget Estimates and Expenditure 2016-17 of UTs without legislature

Table 5.1

(` in Crore)

Name of the Grant BE RE Expenditure as % BE 2016-17 2016-17 on date i.e. of RE 2017-18 31.1.17

49-Andaman and Nicobar 4144.02 4553.74 3249.45 71.36% 4263.28 Islands 50-Chandigarh 3937.79 4268.75 3508.42 82.19% 4312.40 51-Dadra and Nagar Haveli 1071.74 1105.19 811.58 73.30% 1075.62 52-Daman and Diu 1665.32 1536.19 1105.54 71.97% 1585.06 5 3-Lakshadweep 1254.84 1037.67 735.22 70.85% 1248.91

TOTAL 12073.71 12501.54 9410.21 75.27% 12485.27

50 51

5.1.4 Further, the details of the Budgetary Grants allocated for these UTs during the fiscal year 2017- 18 have been given in the following table:-

Grant 49 to 53

Union Territories without Legislature 2017-18

Table 5.2

(` in crore)

Revenue Capital Total

49 - Andaman and Nicobar Island 3736.69 526.59 4263.28

50 - Chandigarh 3837.40 475.00 4312.40

51 - Dadra and Nagar Haveli 686.46 389.16 1075.62

52 - Daman and Diu 1288.11 296.95 1585.06

53 - Lakshadweep 1083.26 165.65 1248.91

TOTAL 10631.92 1853.35 12485.27

5.1.5 The Committee also notes that some UTs like Daman and Diu and Lakshadweep Islands had to surrender certain amount of funds at RE stage in 2016-17. This not only points towards poor fund absorption capacity and underperformance but also led to grant of lower allocation in BE 2017-18 as compared to BE 2016-17. The Committee recommends that the Ministry must meticulously monitor the fund utilization status of these UTs on a quarterly basis and exhort them to diligently work towards faster execution of projects, whenever they lag behind, so as to achieve better utilization of funds in the first half of FY 2017-18.

5.1.6 With regard to the UT of Chandigarh, the Committee examined their Grants in detail and felt that the allocated amount should be enhanced keeping in view the various urgent requirements of the UT which serves as the Capital of two States. The Member of the Committee who represents that UT informed the Committee that present allocation of ` 4312.40 crore will not be sufficient and additional ` 1298.00 crore would be required to take up certain major works pertaining to land acquisition, expenses pertaining to Grant in Aid (General) to MCC, Supply and Material Purchase of Power, Wages and Other Charges, purchase of Machinery and Equipment, Grant-in-Aid for creating Capital Assets, purchase of CTU buses and fuel for the fleet of buses of the Transport Department. As regards the above-mentioned requirement of additional ` 1298.00 crore over and above the allocated budget for the financial year 2017-18, the Ministry replied that in view of the trend of expenditure, the additional fund demanded by the UT of Chandigarh may be considered at RE 2017-18 stage.

5.1.7 The Committee recommends that in view of the previous track record the demand of the UT of Chandigarh for additional 1298.00 crore must be considered positively at RE Stage and the amount of ` 4312.40 crore, which has been already allocated, may be utilized fully. 52

5.2 UNION TERRITORIES WITH LEGISLATURE

5.2.1 The Ministry of Home Affairs informed the Committee about the details of transfers (at both BE and RE stage) as well as the actual expenditure incurred during the last fiscal year along with the BE transfer for the year 2017-18 made for the UTs of Delhi and Puducherry. The data given are as follows:- Budget Estimates and Expenditure 2016-17 and 2017-18 of Delhi and Puducherry Table 5.3 (` in crore) BE 2016-17 RE 2016-17 Expenditure % of BE as on date RE 2017-18 54-Transfers to Delhi 758.00 818.00 757.99 92.66% 758.00 55-Transfers to Puducherry 1390.00 1425.14 1379.99 96.83% 1483.01

TOTAL 2148.00 2243.14 2137.98 95.31% 2241.01 5.2.3 The Committee was also informed that Schemes/Projects are scrutinized and sanctioned by the Ministries concerned. The above transfer also covers assistance to UTs of Puducherry and Delhi in the form of Grants and Loans. Central Assistance to Delhi is ` 413 crore for financing of UT's projects/ schemes and `325 crore has been allocated as grants in lieu of share in Central Taxes and Duties. Central Assistance to Puducherry is ` 1401 crore. This assistance is provided to Puducherry to meet their budgetary deficit and financing of UT's projects/schemes. 5.2.4 The Committee specifically desired to know from the Ministry about the projection made by the NCT of Delhi and Puducherry and was informed that an amount of ` 7735.00 crore and ` 3132.00 crore was projected by them respectively. The Government of Puducherry has also reported that the allocation is not sufficient to meet the expenditure over the years. 5.2.5 The Committee also feels that in comparison to the demand projected by the NCT of Delhi and Puducherry, the BE allocation is meager and recommends that this needs to be substantially enhanced at RE stage as their utilization percentage (above 90%) is also highly satisfactory. 5.2.6 The scheme/head wise details of the allocation and expenditure with regard to the NCT of Delhi are as follows:- Table 5.4 (` in crore) Name of the Scheme/Head BE RE Expenditure BE BE 2017-18 2016-17 2016-17 2016-17 2017-18 (Granted) (Projected) 123456 Enhanced compensation for 15.00 75.00 15.00 30.00 15.00 death, injury, damage to residential property in 1984 Riots. 53

123456

Grants in lieu of share in 325.00 325.00 243.75 6000.00 325.00 Central Taxes and Duties

Contribution to Delhi Disaster 5.00 5.00 0.00 5.00 5.00 Response fund

Central Assistance to Delhi 412.99 412.99 309.75 1500.00 412.99

Additional Central Assistance 0.01 0.01 0.00 200.00 0.01 for Externally Aided programme

TOTAL 758.00 818.00 568.50 7735.00 758.00

5.2.7 The Committee notes that against the projected central assistance to Delhi of amount ` 1500.00 crore only `412.99 crore has been given in the BE 2017-18 and recommends that more amount should be given as central assistance. Moreover, for additional central assistance for externally aided programme (EAP) only ` 0.01 crore has been granted against the projection of ` 200.00 crore which should also be increased and the Committee should be informed about the details of such EAPs.

5.2.8 The scheme/head wise details of the allocation and expenditure with regard to the UT of Puducherry are as follows:-

Table 5.5

(` in crore)

Name of the Scheme/Head BE 2016-17 RE 2016-17 Expenditure BE BE 2016-17 2017-18 2017-18 (31.12.2016) (Projected) (Granted)

Central Assistance to 1307.99 1343.13 981.00 2565.00 1401.00 Puducherry

Loan to cover Gap in 72.00 72.00 54.00 72.00 72.00 resources

Contribution to Puducherry 10.00 10.00 0.00 10.00 10.00 Disaster Response Fund

EAP for Coastal Disaster 0.01 0.01 0.00 485.00 0.01 Risk Reduction Project

TOTAL 1390.00 1425.14 1035.00 3132.00 1483.01

5.2.9 The Committee recommends that more amounts should be allocated under the scheme EAP for coastal disaster risk reduction project. 54

5.3 CRIME AND LAW AND ORDER SITUATION IN THE NCT OF DELHI

5.3.1 The Committee, while discussing the functioning of the Delhi Police, raised several queries on different software applications used by them for fighting crime and to improve the law and order situation in the National Capital. The representative of Delhi Police during the evidence explained that with the help of "e-beat book" application which is about to be launched Beat Officer of a particular area will be in touch with residents in a digital mode, sharing information with them and providing any further services which he/she can otherwise render by visiting them physically. The Senior Citizens' App that has been launched since last October would be extended to other citizens. The Committee during its evidence held on 28th February 2017 also expressed its anguish over the deplorable situation regarding the safety of women in Delhi.

5.3.2 The Committee expresses apprehension that such software should not actually reduce the physical movement and active patrolling of the police on ground level and recommends that proper assessment with regard to its impact may be done before launching. The Committee also strongly recommends that Delhi Police has to be more responsive towards women's safety in the NCT of Delhi.

TRAFFIC CONGESTION IN DELHI

5.3.3 The Committee, in its meeting held on Demands for Grants of the Ministry of Home Affairs, deliberated on the problem of traffic congestion in Delhi which has reached unsustainable proportions. Members of the Committee raised many critical questions with regard to the limited carrying capacity of the roads, choking of roads due to ever increasing traffic, insufficient parking, need for construction of more arterial roads to ease the traffic congestion and emergency evacuation plan of the protected persons.

5.3.4 The representatives of Delhi Police while agreeing that traffic management was indeed a worrisome issue in Delhi stated that the issue had been taken up with the concerned authorities.

5.3.5 The Committee feels that the Delhi traffic congestion has become quite alarming and the Delhi Police has failed to implement any significant measures to improve the situation. The Committee takes note of the choked roads in Delhi which makes evacuation of Protected Persons very difficult during traffic congestion. The Committee also observes that a huge number of vehicles are getting registered every day in the Capital and presence of roundabouts on various cross-roads instead of traffic signals which cause congestion. The Committee, therefore, recommends that the Delhi Police needs to prepare a meticulous traffic management plan for Delhi and allocate adequate funds for addressing the issue of traffic management. The Committee also recommends that urgent measures should be taken for managing the city traffic in a better way with construction of more arterial roads and parking bays, declaring some roads as one-way, devising effective emergency evacuation measures for the protected persons and stringent measures against traffic violators. 55

5.4 DEVELOPMENTAL ISSUES PERTAINING TO THE UT OF ANDAMAN AND NICOBAR ISLANDS

5.4.1 The Member of the Committee who represents the UT of Andaman and Nicobar Islands raised the following issues:-

(1) Progress of 02 Nos. Creek Bridge (Middle Strait and Humphrey Strait) sanctioned by the Ministry of Road Transport and Highways;

(2) Status of PMGSY-II (A&N Islands);

(3) Implementation of recommendation of 4th Finance Commission of UT;

(4) Status of Sub-Marine Optical Fiber cable between Chennai to A&N Islands;

(5) Bank Erosion-To control the soil erosion;

(6) Extension of service benefits to 495 workers of the Electricity Department as per the Court orders;

(7) One month compensatory payment to Fire service personnel; and

(8) Resolution of following long pending issues on submerged land:-

(i) Farmers be released compensation amount of ` 9.39 lakh per hectare by treating the same as relief package without insisting for surrendering of their land submerged after Tsunami.

(ii) The affected farmers who have surrendered their land and taken the compensation may be reconsidered for releasing the surrendered land by treating the compensation amount as a relief package.

5.4.2 The Committee notes the written replies furnished by the Ministry on all the above issues and observes that most of them are pending since long and recommends that action should be taken on them on priority basis.

5.5 DEVELOPMENTAL ISSUES PERTAINING TO THE UT OF DAMAN AND DIU

5.5.1 The Member of the Committee representing the UT of Daman and Diu raised the following issues relating to UT of Daman and Diu:

(1) Setting up of One Medical College, One College and One Degree Engineering College. Though the literacy of the UT is in the top 5 of the country still they do not have the colleges for the eligible students who have to go elsewhere for pursuing higher studies;

(2) The administration of Daman and Diu had entered into an MOU with the Dredging Corporation of India to dredge the silt deposited at the mouth of Damanganga and the shoreline to enable making larger jetties/minor ports for bigger fishing vessels. The matter is pending before the Ministry of Environment, Forest and Climate Change for their approval for a long time causing delay in dredging; 56

(3) Diu has an airport which is under expansion for which the work is under progress and on completion would need regional connectivity. Daman has an airport used by the Coast Guard. Civilian flights can be operated only if there is a Civil Terminal for which the administration would need land further from the Coast Guard terminal. There is a need to procure the same by the UT administration for providing regional flights from Daman;

(4) Work on approved bridges over the rivers flowing through Daman and those joining the island of Diu to Gujarat mainland have been stalled by the UT administration which should be implemented;

(5) Notwithstanding the implementation of GST during the next financial year, the tax holiday be extended beyond 2017, so that there is no exodus in the industrial sector and to save employment;

(6) An Oceanarium proposed at Diu is pending for implementation;

(7) Sanjeevani Swasthya Bima Yojana has not been renewed after December, 2016. This was a very good scheme for the poor, the aged and the down trodden. The same may be restored and a Specialty and Super Specialty hospital may also be added;

(8) The administration of the UT has entered into arrangements for drinking water for Daman from Madhuban Dam and for Diu from Raval Dam upto the reservoirs in both Daman and Diu but are clueless with regard to its distribution. Even if there are supply pipe lines to Daman and Diu they are at least 40 years old and require replacement. Adequate budget may be allocated for this project;

(9) Daman requires ample parking space in the Municipal limits of Daman. Roads also require to be re-laid in the limits. Adequate budget should be provided for the same;

(10) There is a vast difference in the wages of specialized doctors recruited in Daman and Diu. The wages of these doctors in Diu are higher than those recruited in Daman-the reason being that Diu is a remote place and it is necessary for doctors to work in Diu. But this has also not attracted applications from specialized doctors in both Daman and Diu because Diu is isolated and lower salary is paid in Daman. This anomaly should be rectified;

(11) To further promote tourism in Daman, extensive cleaning of both the Devka and Jampore beaches should be taken up. Damanganga river also needs to be cleaned up both from contamination of ground water and to save marine life of the river and sea shore. The administration of Daman and Diu has proposed to remove all the kiosks in Devka and Jampore without providing any alternative sites to small vendors doing business there for the last more than 20 years. If no alternative is given, these small vendors would be rendered without any business;

(12) All vacancies in Group-C and non-gazetted Group-B to be filled up from locals only both in Daman and Diu; and 57

(13) The work pertaining to Adarsh Gram Yojana in Daman and Diu should be expedited and appropriate allocation should be made for the same.

5.5.2 The Committee recommends that the above developmental issues should be duly considered by the Ministry and action be taken on priority basis.

5.6 DEVELOPMENTAL ISSUES PERTAINING TO THE UT OF DADRA AND NAGAR HAVELI

5.6.1 The Member of the Committee who represents the UT of Dadra and Nagar Haveli sought to raise the following issues:-

(1) Setting up of medical and engineering college;

(2) Improvement of school education by providing better infrastructure;

(3) Completion of Phase-1 and beginning of Phase-2 of the Silvassa Ring Road Project;

(4) Development of River Front on Priority;

(5) Improvement of the drainage system and redesigning the same;

(6) Provision of health parks at Silvassa and sports complex at Khanvel;

(7) Promotion of tourism infrastructure; and

(8) Filling up of the 819 vacant posts in administration through fresh recruitment and also holding regular DPC meetings to fill up certain vacancies through timely promotion.

5.6.2 The Committee recommends that all of the above mentioned issues are crucial for the development of the UT of Dadra and Nagar Haveli and the Ministry should address them without any further delay. The Committee also recommends that adequate budgetary provisions should be made for the purpose.

5.7 DEVELOPMENTAL ISSUES PERTAINING TO THE UT OF LAKSHADWEEP

5.7.1 The Committee during its meeting held on 28th February, 2017 inter-alia considered the following important issues which are crucial to the development of the UT of Lakshadweep:-

(1) Construction of six desalination plants in six islands;

(2) Construction of residential buildings;

(3) Opening of the transit house at Calicut;

(4) Augmentation of the Satellite bandwidth;

(5) Universal insurance coverage for all citizens;

(6) Filling up of the vacant posts in different groups of Government services; and

(7) Shortage of Rice and LPG.

5.7.2 The Committee observes that as stated by the representative of the Lakshadweep administration only three desalination plants have been approved and the remaining three are 58 still pending. In view of this, the Committee strongly recommends that work pertaining to these three which have been already approved should start immediately without waiting for approval of the remaining three. The Committee realizes that at present Lakshadweep is completely dependent on rain water for drinking purpose. Therefore, provision of safe drinking water is the most urgent need of the Island. The Committee strongly recommends that construction work of all the six proposed plants should begin on priority without any further delay. The budgetary allocation of ` 226 crore should be fully utilized for the same purpose and if need be more funds should be granted at RE stage.

5.7.3 Regarding the construction of the residential buildings, the Committee observes that ` 24 crore has been allocated. The Committee recommends that proper assessment of the actual shortage of residential houses should be made and all proposed units should be constructed in the fiscal year 2017-18 taking into account that construction of a building takes around 18 months in Lakshadweep and work for some houses has already started.

5.7.4 The Committee recommends that the transit accommodation at Calicut should be made functional immediately. The issues that are coming in the way may be sorted out without any delay.

5.7.5 The Committee observes that though the BSNL is augmenting the satellite bandwidth and it would be operational to a certain extent by March, 2017, yet it is not going to be the final solution. Therefore, the Committee recommends that for better network connectivity, use of submarine optical fiber should be explored as suggested by the TRAI.

5.7.6 The Committee notes that at present the Health Insurance Scheme aims at only BPL families. Excluding Government employees and their wards people who are left out would be just around 12,000. The Committee recommends that as suggested by the M.P. from Lakshadweep, the Ministry should explore the possibility of covering all citizens by clubbing together the allocations made for medical reimbursement and health insurance schemes.

5.7.7 The Committee notes that there are several vacancies in all groups of Government services. The UPSC has to fill up the vacancies in groups A and B and for C and D posts the Island administration has to take steps. The Committee suggests that the MHA should coordinate in this regard so that these vacancies are filled up soon. Moreover, as discussed in the meeting of the Committee held on the 16th January, 2016 the Committee strongly recommends that the MHA should also take immediate steps to fill the posts of specialist doctors in the Island that have been lying vacant for the past 13 years.

5.7.8 The Committee notes that supply of ration under PDS has been reduced after implementation of NFSA causing immense hardship to the people. The UT has neither its own rice production nor a dependable market. Therefore, the Committee recommends that a feasible solution should be immediately found for meeting the rice scarcity. The Committee further recommends that all 59 constraints in achieving 100% LPG coverage under Ujjwala Yojana should be removed so that every household will get a LPG connection.

5.7.9 The Committee in view of the detailed discussions held on the 16th January, 2017 and the 28th February, 2017 emphasizes that proper utilization of the allocation made is an absolute necessity so that it does not get reduced at RE stage. The Committee also took note of several other issues like promotion of tourism and developing infrastructure for the purpose, exploring participation of private sector through PPP mode in shipping, transport and tourism sectors, capacity addition of airplanes, increasing air connectivity, developing night landing facilities, installation of 12,000 bio-degradable toilets, improving higher education, better harnessing of renewable energy sources, exploring diverse livelihood opportunities, improving existing harbour facilities, opening of state of the art marine products processing units and surveillance/periodic patrolling of uninhabited islands, etc. The Committee would however address all the issues pertaining to UT of Lakshadweep in a separate report. 60

CHAPTER -VI

OTHER ISSUES

6.1 DEVELOPMENT INITIATIVES IN JAMMU AND KASHMIR

6.1.1 The Ministry of Home Affairs, during its presentation on 27.02.2017 before the Committee, on Demands for Grants (2017-18) of MHA, informed that the Prime Minister had announced a Development Package of ` 80,000 crore for J&K under which 7 Projects were being implemented with financial support from MHA. The details and status of these projects are as follows:

(i) State Government jobs were to be provided to an additional 3000 Kashmiri migrants. All 3000 posts had been identified in 18 departments and creation of these posts was underway by the State Government.

(ii) 6000 transit accommodations were to be constructed in the Kashmir valley. Work was in progress for 400 transit accommodations and for the remaining transit accommodations, about 90 acres land had been identified by the State Government.

(iii) Projects amounting to ` 255 crore had been approved for improving Security and Law and Order system in J&K.

(iv) A Rehabilitation package for one time settlement of 36,384 families from Pakistan occupied Kashmir (POK) and Chhamb Displaced Persons was also provided. Orders for approval of the Package were issued on 22-12-2016 and State Government of J&K had started inviting applications from the beneficiaries.

(v) Under the Rehabilitation packages for Jammu migrants, the relief amount provided to 1054 families of Jammu migrants had been increased and they were now (w.e.f. 18.11.2015) getting relief at par with the Kashmiri migrants i.e. ` 2500 per person per month (Max. `10,000 per family per month) plus ration.

(vi) Under the plan for raising of 5 new India Reserve Battalions in J&K, recruitment process was in progress.

(vii) Remuneration of Special Police Officers (SPOs) was enhanced from ` 3000/- per month to ` 6000/- per month – Sanction issued on 18.03.2016.

6.1.2 The Committee notes that under the ` 80000 crore Prime Minister's Development Package for J&K, several projects were initiated by the Ministry; however, most of the projects, namely, project for creation of jobs, transit accommodations, one time settlement of 36,384 families from Pakistan occupied Kashmir (POK) and Chhamb Displaced Persons and raising of IRB battalions, were still under progress and little outcome was achieved. Observing this pattern of poor outcome in the past twelve months, the Committee recommends that the Ministry should intensify its

60 61 efforts to achieve measurable outcome under the PM's Development Package by speeding up the work in the upcoming fiscal year and implementing all the projects at the earliest. The Committee also desires that the Ministry may apprise the Committee about the details of expenditure incurred under various heads out of ` 80000 crore and the actual physical and financial achievements against set targets under this package.

6.2 INTERNAL SECURITY ISSUES

6.2.1 The Ministry, in its list of achievements submitted to the Committee, asserted that overall internal security situation in the country remained under control. As far as terror related cases in the hinterland of the country were concerned, in the year 2016, one terror attack took place on 2nd January, 2016 at Pathankot in Punjab by the militants coming from Pakistan, wherein 7 Security Forces personnel sacrificed their lives and 37 persons were injured. All the militants were neutralized by the Security Forces.

6.2.3 The Ministry also stated that there was a significant improvement in the overall security situation in the hinterland, the North-Eastern States and Left Wing Extremism (LWE) affected States. The declining trend of LWE, which started in 2011, continued in 2016 as well. The last two and a half years saw an unprecedented improvement in the LWE scenario across the country. There was an overall 7% reduction in violent incidents (1136 to 1048) and 30% reduction (397 to 278) in LWE related deaths since the end of 2013. Over the same period there had been an increase of 50% in encounters (218 to 328) and an unprecedented 122% increase (100 to 222) in elimination of armed Maoists cadres. On the other hand, a 43% reduction (115 to 65) in casualties to Security Forces personnel was observed. At the same time there was an increase in the number of LWE cadres shunning the path of violence and returning to the mainstream. Compared to 2013, surrenders by LWE cadres increased by 411% (282 to 1442) in 2016.

6.2.4 On the front of cross-border terrorism and law and order situation in J&K, the Ministry informed the Committee that after the neutralization of 3 terrorists of Hizbul Mujahideen on 8th July 2016, violent protests and law and order disturbances had started in different parts of Kashmir Valley. Inimical and anti-social elements exploited the news on social media platforms to inflame passions and incite sentiments. Protests were witnessed all over the Valley, particularly in the rural and far-flung areas, targeting security installations of South Kashmir and parts of Central and North Kashmir. Due to persistent efforts of the Security Forces/J&K Police, the situation has shown improvement and the number of incidents have declined considerably. 820 instances of law and order violation incidents were reported during July, 2016, which has come down to 36 in December, 2016 and further to 2 in January, 2017 (till 20th January). There have been several major terror attacks in the State in Uri, Nagrota etc. However due to the continued efforts of security forces, the situation is under control.

6.2.5 The Security situation in the North Eastern States, as per the Ministry of Home Affairs, improved substantially in 2016. The number of insurgency related incidents in the region decreased by more than 15% compared to 2015 (2015-574, 2016-484). The year 2016 witnessed the lowest number of insurgency incidents since 1997. Similarly, casualties among security forces causalities in the region declined from 46 (2015) to 17 (2016). Civilian declined in all States except Assam where it increased from 9 in 2015 to 29 in 2016, thereby leading to an overall marginal increase (2015-46, 2016-48). The number of 62 kidnapping/abduction incidents also declined in the region (2015-267, 2016-168). Counter Insurgency Operations led to the killing of 87 and arrest of 1202 militants along with recovery of 605 weapons during 2016 in the region.

6.2.6 The Ministry, in its presentation during the consideration of Demands for Grants by the Committee, also gave an overview of the security scenario by presenting the following trends of terrorist violence in the country.

Trends of Terrorist Violence in Jammu and Kashmir

Table 6.1 Sl.No. Incidents 2012 2013 2014 2015 2016 1. Terrorist violence incidents 220 170 222 208 322 2. Civilians killed 15 15 28 17 15 3. Security Forces killed 15 53 47 39 82* 4. Militants killed 72 67 110 108 150 5. Infiltration Attempts 264 277 222 121 364 6. Net Infiltration (Estimated) 121 97 65 33 112

* 46 out of 82 were Army/Air Force personnel.

Trends of LWE Violence Table 6.2 Sl.No. Parameters 2011 2012 2013 2014 2015 2016 1. No. of incidents 1760 1415 1136 1091 1088 1048 2. Civilians killed 469 301 282 222 171 213 3. No. of Security 142 114 115 88 59 65 Forces killed 4. No. of encounters 223 216 218 221 247 328 with police 5. No. of LWE cadre 99 74 100 63 89 222 killed 6. No. of LWE cadre 2030 1901 1397 1696 1668 1840 arrested 7. No. of LWE cadre 394 445 282 676 570 1442 surrendered 8. Total no. of arms 67 55 89 58 18 3 snatched 63

Trends of Extremist Violence in North Eastern Region

Table 6.3

Year Incidents Extremist Killed SFs Killed Civilians Killed Extremist Arrested 2012 1025 222 14 97 2145 2013 732 138 18 107 1712 2014 824 181 20 212 1934 2015 574 149 46* 46 1900 2016 484 87 17 48 1202

*of which : Assam Rifles (14), Army (22)

6.2.7 The Committee does not share the perception of the Ministry that the overall internal security scenario remained under control during 2016. While the terrorism in the hinterland of the country and Left Wing Extremism remained comparatively muted during 2016, the opposite is however true in the case of cross border terrorism in J&K which remained on the boil throughout the year 2016 due to a number of terrorist attacks, and huge upsurge in number of infiltration attempts (364 in 2016 as compared to 121 in 2015). A new trend of terrorist violence that is visible is targeting of security establishments of CAPFs and Armed Forces by the terrorists. The Committee is constrained to note that 82 personnel of security forces were martyred last year. At the same time, the Committee is anguished at the vulnerabilities and loop holes in security of the establishments of the Forces exposed by a series of terrorist attacks that occurred in 2016. The Committee recommends that the Ministry must put rigorous efforts to completely stop infiltration from across the border and prevent all types of terror activities in J&K. The security of the establishments of the forces should be tightened and the incidents of attacks on establishments of the forces should not be allowed to recur. In this regard, the Committee reiterates its recommendations given in Para no. 3.1.5 on Pathankot Airbase Attack in its 199th Report on Action Taken by Government on the Recommendations/Observations contained in the 197th Report on Demands for Grants (2016-17) of the Ministry of Home Affairs which is as under:

"3.1.5 Despite the several steps reportedly taken by the Government to strengthen the security measures, it has comprehensively failed to prevent recurrence of such attacks that took place at Pampore, Uri, Baramula, Handwara and Nagrota. The Committee observes that the Government has not learnt any lesson from the Pathankot attack. The Committee, therefore, recommends that there remains an urgent need to further strengthen the security network and plug the serious gaps in security establishment and intelligence gathering/sharing that have come to the fore in the recent attacks."

6.2.8 The Ministry also apprised the Committee about the law and order scenario of Jammu and Kashmir while admitting that the number of law and order incidents have risen during 2016. It also submitted month wise details of law and order incidents since 8 July, 2016 till 20 January, 2017 as under: 64

Table 6.4

Month No. of Law & Order No. of civilians No. of SFs Incidents killed killed July'16 (since 8 July) 820 42 2 August 774 19 - September 508 10 - October 179 1 - November 73 1 - December 36 0 - January'17 (till 20 Jan) 02 0 -

TOTAL 2392 73 2

6.2.9 The Committee is aware of the disturbing trend of recruitment and training of local youth by the militants in the light of the numerous infiltration attempts foiled by the security forces. There has been a rise in the number of law and order incidents, particularly incidents of stone pelting which seems to have become a regular feature in some parts of Kashmir. Numerous incidents of picketing of police stations and snatching of rifles from police and para-military personnel point towards local sourcing of arms. The Committee feels that there is a sinister and complex connection between the simultaneous rise in stone pelting incidents and fidayeen attacks on the establishments of security forces. While the law and order incidents have kept the security forces busy, the militants meanwhile have found time to reorganize themselves and perpetrate terrorist attacks on the forces. The Committee recommends that the Ministry must work towards comprehensively breaking this nexus through a multi-pronged strategy that encompasses preventing the youth from joining the militant ranks, choking the financing and supply of arms to terrorist outfits and simultaneously launching counter insurgency operations throughout the Kashmir region to identify and capture the existing militants.

6.2.10During the discussion on DFG, one of the Members raised the issue of regular killing of civilians and CRPF personnel in LWE affected areas and sought to know the measures that were being taken by the Ministry for protection of personnel posted in these areas. He also sought to know whether any Mine Resistant Ambush Protected vehicles were being procured for protection of CRPF personnel. The Home Secretary stated that there was no plan to procure such vehicles as they were prohibitively expensive and there was no money available for the purpose. Instead, he informed, that the Ministry was trying to work with local manufacturers for bullet-proofing the vehicles used by the personnel. The Joint Secretary further added that the private sector in India was not producing any mine protected vehicles with the level of protection required. However, he informed that, the Ministry was working with some of the materials and trying to find out if they could be used to fabricate a Mine Protected Vehicle. He further apprised the Committee that the Ministry was at an advanced stage of procuring around 300 light bullet-proof vehicles and the procurement will be completed within six months. 65

6.2.11 One of the Members observed that while bullet-proof vehicles were useful for J&K, however, they may not be able to protect personnel in LWE affected areas in Odisha, Chhattisgarh and Jharkhand where hundreds of paramilitary and police personnel were getting killed because of mines and ambushes. He also stated that not sanctioning funds for such necessary equipment is grave negligence.

6.2.12 The Committee is constrained to observe that lack of financial resources is becoming a reason for casualty of valuable lives of police and CAPF personnel which are being lost in the battle against Left Wing Extremism. The Committee feels that bullet-proof vehicles would not be safe or sufficient for use in LWE areas. On the other hand, the Ministry feels constrained to procure advanced equipment due to lack of financial resources. In such a scenario, the Committee recommends that the Government should explore the opportunities created by the Make in India programme and develop indigenous vehicles. The Committee also recommends that in the meanwhile, the Ministry should explore other measures including import of suitable vehicles.

6.3 ONLINE REGISTRATION UNDER FOREGIN CONTRIBUTION REGULATION ACT

6.3.1 The Committee elicited information from the Ministry of Home Affairs regarding delaying renewal of FCRA account of a number of organizations and also sought details of number of pending cases. The Ministry informed that the renewal of FCRA registration was done under the provisions of Section 16 of FCRA, 2010 and rules made under the Act. So far, FCRA registration of over 15,000 associations had been renewed. Over 3500 applications of renewal of registration were under process for consideration. More than 19,000 applications for renewal of registration were received during the year 2015 and 2016. This sudden surge of applications was because of implementation of FCRA 2010 with effect from 01.05.2011, as the Act provided for the mandatory renewal of application after every five years.

6.3.2 The Committee also enquired regarding the online registration of FCRA which was started in 2015 and whether adequate publicity was done throughout the country about the changed process, for awareness of the users, when the on-line process was made compulsory. The Ministry replied that the mandatory on line submission of applications for registration under FCRA was started in December, 2015. IT systems were being continuously upgraded and improved. The changed process was notified vide the Ministry's gazette notification No. GSR 966(E) dated 14.12.2015 and also on MHA website.

6.3.3 The Committee feels that several organizations which are functioning in the remote parts of the country may not be fully aware about the online process of application and renewal of FCRA registration and wider publicity should have been given to the new process through print and electronic media. The Committee takes note of the fact that a huge number of applications for renewal of FCRA registration are still pending for renewal. The Committee, therefore, recommends that the Government may facilitate genuine organizations that could not apply online due to lack of awareness and renew their registrations without further delay so as to help them smoothly run their operations. 66

6.4 ONLINE CHILD SEX ABUSE IN INDIA

6.4.1 UNICEF India in its report titled 'Child Online Protection in India' has stated that cyber-crimes against children in India were under-reported and not included in the National Crime Records Bureau statistics as a separate category. The Committee sought to know the details on this from the Ministry. The Ministry replied that NCRB was collecting aggregated statistics on police registered cases on crimes and criminals from State Crime Records Bureau of all States/UTs in a prescribed format on annual basis. The Bureau does not maintain the records of online child sex abuse separately. However, after implementation of Crime and Criminal Tracking Network and System (CCTNS) fully throughout the country, it will be possible to maintain such data at national level. The Committee was also provided statistics of reported cases under publishing or transmitting of material depicting children in sexually explicit acts and pornography of children (section 14 and 15 of the Protection of Children from Sexual Offences Act, 2012) for the year 2014 and 2015 which are as follows:

Table 6.5

Sl.No. State/UT Publishing or transmitting of Pornography of children material depicting children in (Section 14 & 15 of the sexually explicit act, etc., in Protection of Children electronic form (section 67B from Sexual Offences IT Act) Act, 2012)

2014 2015 2014 2015

1 2 3 4 5 6

1. Andhra Pradesh 0 0 0 11

2. Arunachal Pradesh 0 0 0 0

3. Assam 0 0 0 0

4. Bihar 0 0 1 0

5. Chhattisgarh 0 3 1 26

6. Goa 0 0 0 0

7. Gujarat 0 0 3 1

8. Haryana 0 0 0 3

9. Himachal Pradesh 0 0 0 0

10. Jammu and Kashmir 0 0 0 0

11. Jharkhand 0 0 0 17

12. Karnataka 0 1 5 7 67

1 2 3 4 5 6

13. Kerala 1 1 1 0

14. Madhya Pradesh 1 0 0 0

15. Maharashtra 1 1 0 0

16. Manipur 0 0 0 0

17. Meghalaya 0 0 0 0

18. Mizoram 0 0 0 0

19. Nagaland 0 0 0 1

20. Odisha 0 0 0 1

21. Punjab 0 0 0 0

22. Rajasthan 0 0 0 0 23. Sikkim 0 0 0 0 24. Tamil Nadu 0 1 20 8 25. Telangana 0 0 0 0 26. Tripura 0 0 0 0 27. Uttar Pradesh 1 1 5 19 28. Uttarakhand 0 0 0 0 29. West Bengal 1 0 4 0 Total States 5 8 40 94 30. Andaman and Nicobar 0 0 0 0 Islands 31. Chandigarh 0 0 0 0

32. Dadra and Nagar Haveli 0 0 0 0

33. Daman and Diu 0 0 0 0

34. Delhi UT 0 0 0 0

35. Lakshadweep 0 0 0 0

36. Puducherry 0 0 0 0

TOTAL UT(s) 0 0 0 0

TOTAL (ALL INDIA)5 8 4094

Source: Crime in India 68

6.4.2 The Ministry also informed the Committee that a new scheme 'Cyber Crime Prevention against Women and Children (CCPWC)' was scheduled to be implemented during the year 2017 -18. The scheme envisages creation of Online Cyber Crime Reporting Platform, National Cyber Forensic Laboratory, Research and Development for new tools, training, capacity building, etc.

6.4.3 The Committee is anguished to note the severe under-reporting of crimes related to online child sex abuse in India. Firstly, NCRB does not maintain any separate record of cyber crimes against children. Secondly, whatever data is collected by NCRB presently, however rudimentary it may be, provides an insight into the state of law enforcement in the country as it is unbelievable that in most of the States there is no incidence of any online child sex abuse. The data indicates the extremely poor law enforcement in relation to these crimes as it only collects information of reported cases and it fails to give a reflection of true prevalence rate of such crimes as it does not capture the actual number of incidents. The Committee recommends that law enforcement agencies need to be made aware of the challenging aspects of cyber-crimes against children and their capacity to record and initiate action against such crimes needs to be urgently strengthened. The Committee also recommends that from 2017 itself NCRB should collate all the instances of online child sex abuse and other cyber-crimes against children under a separate category so that performance of law enforcement agencies on this aspect can be observed.

6.4.4 The Committee is aware of the fact that child sexual abuse and related crimes remain overwhelmingly under-reported in this country due to associated stigma and propensity of parents/ guardians to not involve police in these matters. The Committee feels that the process of reporting such crimes needs to be simplified and identity of children involved be protected to ensure that such crimes do not go unreported. The Committee recommends that the Ministry should work towards enhancing capacities of the police forces and cyber forensic agencies and simplifying and strengthening cybercrime investigations involving children. The Committee also recommends that all States may be requested to create an Online Cyber Crime Reporting Platform under Cyber Crime Prevention against Women and Children Scheme and publicise it adequately through print, electronic and social media to encourage reporting of such crimes. The Ministry may also provide adequate funds specifically for this purpose under the Modernisaton of Police Forces Scheme.

6.5 SAFETY OF WOMEN

6.5.1 The Ministry apprised the Committee that Women's security and increase in cyber-crime are the new challenges facing the country. The Government assists the States to set up investigative units for crime against women, utilizing the 'Nirbhya Fund'. The Government has also recently extended the revamped Crime and Criminal Targeting Network System (CCTNS) project with an objective of fully computerising the functioning of Police Stations, interlinking and sharing of data amongst police, courts, prisons, prosecution and forensic laboratories.

6.5.2 The Ministry also informed that it was implementing a central sector project under Nirbhaya Fund in the name of Cyber Crime Prevention against Women and Children (CCPWC) with an outlay of `195.83 69 cr for the next 3 financial years. 36 Cyber Forensics Training Centers will be established in all State/ UTs. 40500 police officers will be trained across India and a Research and Development Center will be established for research on cybercrime prevention technologies.

6.5.3 During the discussion of the Committee for consideration of DFG (2017-18) of Ministry of Home Affairs, a Member of the Committee raised the issue of security of women in Delhi and asked the Delhi Police to inform if they had a mechanism whereby it could be ensured that every establishment in Delhi, whether private or public, is adhering to the directions of the Supreme Court, also known as Vishakha Guidelines, with regard to protection of women employees in the workplaces. Delhi Police was also asked about the rate of crimes against women in the capital and whether there was a decline. Special CP (Crime) replied to the query by stating that crimes against women had indeed declined as compared to 2015. While there was a minor decrease in the number of rape cases, there was a substantial decrease of 22 per cent in crimes related to molestation of women.

6.5.4 One of the Members then queried as to why rapes were not declining and why optimal utilization of Nirbhaya Fund was not being done to improve the security of women. Delhi Police Commissioner responded to the Member's query by stating that out of the rape incidents reported, only less than four per cent were committed by accused persons who were unknown to the victim. The majority of the cases i.e. more than 96% were taking place either within the household or in the neighbourhood or by accused persons who were already known to the victim or had some kind of a relationship and subsequently it had fallen sour.

6.5.5 The Committee notes that Nirbhaya Fund, which was given ` 1000 crore, remains severely underutilized. The Committee is surprised that the Ministry is yet to chalk out proper schemes for implementation under this Fund. As of now, the funds are being used for miscellaneous expenditure only which does not address the safety and security concerns of women. The Committee recommends that the Ministry, after due research and consultations with States/UTs, should prepare proper Schemes with measurable outcome indicators.

6.6 HIMMAT APP

6.6.1 During the discussion, clarification was also sought on the Himmat App for women, the number of times this App had been used by women in distress and the measures being taken to increase its popularity and usage. It was also asked why most of the funds under the Scheme for Safety of women remained unutilized by Delhi Police. Special CP (Crime) replied that 75 calls came from Himmat App which required police action. However, he asserted that total downloads of this App were 89662, and there were 30821 registered users. Total calls that were received in the control room were 8653. Out of that, most of these were SOS test calls. One of the Members remarked that the number of downloads and registered users of Himmat App were very few probably due to requirement of registration that makes the process complex and availability of the App in only the English language. The Special CP, Delhi Police replied that this App had also been misused when it was started and people used to send pornographic material intentionally. Therefore, the registration process was introduced to get the genuine users. However, the Member pointed towards only 1000 Android downloads of the App during the last two years and termed this App as a failure in ensuring an emergency helpline for women. 70

6.6.2 The Committee notes the submission of Delhi Police regarding the status and number of users of Himmat App and feels that this App has failed to serve the purpose for which it was introduced with a lot of fanfare. The Committee finds that complex registration process and non- availability of App in Hindi have restricted the number of users of this App. The fact that the App had only 30821 registered users in a city with a population of almost 19 million reflects upon the comprehensive failure of this App to function as an SOS helpline for the women. The Committee also feels that without adequate publicity among the target group, this App will not be able to see any increase in number of users. The Committee, therefore, recommends that Delhi Police should redesign this App by simplifying it and either remove the registration process or simplify it as much as possible by seeking only the minimum details required. The Committee also recommends that Himmat App must be made available in Hindi as well to enable a large number of women to use this App.

6.6.3 The Committee also feels that due publicity was not given to this App and better publicity in more unconventional ways and through social media platforms can help increase the number of users. The Committee, therefore, recommends that Delhi Police must hire the services of a private digital marketing agency to publicize this App among the target users, and give a specific target to the agency of achieving at least a million downloads by the end of 2017.

6.7 LONG TERM VISA (LTV) TO MINORITY COMMUNITIES FROM PAKISTAN, BANGLADESH AND AFGHANISTAN

6.7.1 The Ministry in its list of achievements during 2016-17 submitted to the Committee stated that Government had issued instructions on 19.8.2016 for granting various facilities to persons belonging to minority communities in Afghanistan, Bangladesh and Pakistan who were staying in India on Long Term Visa (LTV) or who have applied for LTV. These facilities include permission for opening of bank accounts, permission for purchase of dwelling unit for self occupation and suitable accommodation for carrying out self-employment, issue of PAN card, Aadhaar number and driving license, permission to take up self-employment or business, allowing free movement within the State/UT, permission to transfer LTV papers from one State/UT to another, reduction in penalty on non-extension of short term visa/LTV on time and permission to apply for LTV at the present place of residence.

6.7.2 The Ministry also informed, during its presentation before the Committee, that the Citizenship (Amendment) Bill, 2016 was introduced in Lok Sabha on 19.07.2016 to facilitate grant of Citizenship to minority communities from Pakistan, Bangladesh and Afghanistan who have entered into India on or before 31.12.2014. The Committee was further apprised that this Bill was under consideration of a Joint Parliamentary Committee. The Ministry also stated that powers were delegated on 23.12.2016 to District Collectors of 16 Districts of 7 States and State Governments of remaining Districts for processing grant of Citizenship for a period of 2 years. The amount of application/processing fees was also reduced to benefit minority community migrants from Pakistan, Bangladesh and Afghanistan.

6.7.3 Some of the Members of the Committee took exception to the submission of the Ministry and queried as to how the Ministry can proceed with reduction of application fee for LTV while the bill was 71 still being examined by the Joint Parliamentary Committee concerned. The Home Secretary replied that this was done as the fee is fixed under the rules and not under the Act which was being amended. Moreover, as of now only the notification for reduction of fee was issued and any application will be taken and processed only after the amendment Bill was passed.

6.7.4 The Committee is surprised by the notification notifying the reduction of application fee specifically for minority community only for LTV. The Committee feels that the Ministry should have waited for the passage of the Bill by the Parliament before going ahead with the notification. While the Committee appreciates the measures taken by the Ministry as mentioned in Para 6.7.1, the Committee recommends that, notifications should be issued after The Citizenship (Amendment) Bill, 2016 is passed by the Parliament. 72

RECOMMENDATIONS/OBSERVATIONS — AT A GLANCE

ALLOCATIONS, PROJECTIONS AND VARIATIONS

The Committee has noted a nominal increase of 5.24% in allocation under the Demand No. 46 (MHA) and 6.43% in allocation under Demand No. 48 (Police) as compared to the allocation made in RE 2016-17. The Committee feels that this nominal increase may not be even sufficient to offset the impact of higher wages due to the 7th Central Pay Commission's recommendations and higher costs due to normal inflationary pressures. Moreover, the allocation under Demand No. 48 (Police) is 23% lower than the amount projected by the Ministry. The Committee feels that this shortfall of nearly ` 23,526 crore may severely hamper the operations of the security forces and impede the operations of police and border infrastructure in the country. The Committee recommends that the Ministry of Home Affairs, in view of the imminent necessity of strengthening the border and internal security of the country, should pursue the Ministry of Finance for higher allocations at RE stage. (Para 2.2.6)

The Committee also observes that overall allocation to UTs is much lower in comparison to what they have projected. The Committee feels that this may hamper the growth and development of the UTs. The Committee recommends that the Ministry should approach the Ministry of Finance for higher allocation to these UTs at RE stage. Detailed analysis of the respective Grants has been given in Chapter-V of the Report. (Para 2.2.7)

UNDERUTILISATION OF FUNDS

The Committee takes a very serious view of under utilization of funds in respect of the Plan Schemes of Ministry of Home Affairs throughout the 12th Five Year Plan. Almost every year, several important Divisions of MHA including Border Management, Disaster Management, Police-I, Police-II and Internal Security-I Divisions have surrendered huge amounts of funds at RE stage. In some cases the surrendered funds were to the tune of 50% and above which is a clear indication of incoherent planning, lack of conviction and inefficient functioning of the Divisions concerned. In most of the Schemes/Heads wherein funds were surrendered, the reasons given by the Ministry were mostly related to non-finalisation of proposals, slow progress of construction works and procedural delays. The Committee expresses its displeasure in the strongest terms on this issue and observes that surrendering of funds at RE stage may be seen as a clear measure of inefficiency of and unrealistic budgeting by the Divisions concerned as this has direct ramifications on the country's security and law and order situation. (Para 2.3.3)

The Committee also notes that some Divisions were unable to completely utilise the funds even after the substantial cuts at RE stages imposed by the Ministry of Finance. The Committee feels that this is quite inexcusable as failure to absorb the funds even after surrendering nearly 40-60% of the budgetary allocations at RE stage is an indicator of underperformance. The

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Committee, therefore, recommends that the Ministry of Home Affairs must explore innovative solutions, prepare flexible and workable action plans, consistently meet all deadlines, and develop strategic alternatives wherever the current strategy may not yield the intended results so as to achieve the desired physical and financial targets. (Para 2.3.4)

DEMAND NO. 46 – MINISTRY OF HOME AFFAIRS

The Committee notes the cut effected at RE stage in 2016-17 under capital head were due to delays in start of projects, purchase of land and procurement of equipments, and feels that procedural delays and inefficient functioning are the fundamental reasons due to which project implementation suffers and capital funds remain unutilized. The Committee recommends that the Ministry should make sincere efforts to remove all the bottlenecks and procedural delays that have led to surrendering of substantial funds in 2016-17 and ensure that capital funds are fully utilized in the next fiscal. (Para 3.1.5)

NATIONAL DISASTER RESPONSE FORCE (NDRF)

While examining the projections made under this Demand, the Committee notes that there is a shortfall of ` 231.76 crore in the allocation made to NDRF Head in BE 2017-18 as compared to the demand projected by MHA. The Committee is concerned to find reduced allocation despite very good fund utilization by NDRF during 2016-17. The Committee, in view of proposed expansion plans of NDRF, recommends that MHA must pursue the Ministry of Finance for higher allocation to NDRF at RE stage so as to overcome any financial bottlenecks. (Para 3.3.4)

RELIEF AND REHABILITATION FOR MIGRANTS AND REPATRIATES

The Committee notes that an amount of ` 500 crore has been provided for expenditure towards rehabilitation package for settlement of displaced families from Pakistan occupied Kashmir and Chhamb Niabat Areas under Prime Minister Development Package for Jammu and Kashmir. However, no expenditure was incurred upto December, 2016 on this account. The Committee, therefore, strongly recommends that the Ministry should earnestly implement this package by making prudent and timely utilization of allocated funds. The Committee also desires to be apprised about the status of the implementation of this rehabilitation package. (Para 3.4.7)

The Committee is displeased with the fact that against an allocation of ` 340 crore in BE 2016-17 for Rehabilitation Package and up-gradation of infrastructure of the Bangladeshi Enclaves and Cooch Behar District, ` 200 crore were surrendered at RE stage and even after that no expenditure was incurred by the Ministry upto December, 2016. The Committee is particularly anguished at the reports of these persons living in abject poverty and left to fend for themselves even for most basic necessities. The Committee would like to strongly emphasize the importance of expeditiously implementing this rehabilitation package for the persons who have expressed their faith in India and opted for Indian citizenship with a hope that Government of India will provide them essential facilities and decent means of livelihood and infrastructure. The Committee, therefore, recommends that the Ministry of Home Affairs should not let the returnees from 74

Bangladeshi enclaves suffer anymore and should implement the rehabilitation package with utmost sincerity and urgency and, until the package is fully implemented, adequate relief may be sanctioned and provided to them on a continuous basis. The Committee also recommends that the senior officers of the Division concerned may visit the enclave dwellers periodically and review the status of implementation of the package on a regular basis. The Committee may also be kept apprised of this on a quarterly basis till the implementation is completed. (Para 3.4.8)

The Committee recommends that the Ministry of Home Affairs may sanction some amount of cash relief to be paid on a monthly basis to all the families who opted for Indian citizenship subsequent to the exchange of enclaves between India and Bangladesh. An urgent decision may be taken to provide this assistance immediately and arrangements may be made for directly transferring this assistance into the Aadhaar-linked bank accounts of the beneficiaries under the Direct Benefit Transfer Scheme. (Para 3.4.9)

INFRASTRUCTURE FOR DISASTER MANAGEMENT

The Committee expresses its concern over the non finalization of proposals of NDRF and delay in clearance of infrastructure projects due to which substantial amount of funds were surrendered at RE stage 2016-17. All ground work should have been done before the proposals were made at BE stage. The Committee notes that approval has now been granted and construction has begun. The Committee recommends that the construction work may be fast-tracked and all the infrastructure projects may be completed as per the timeline. (Para 3.5.3)

NATIONAL CYCLONE RISK MITIGATION PROJECT

The Committee notes that Early Warning Dissemination System is expected to be commissioned by mid-2017 and recommends that it should be completed as per the schedule without any delay so as to be operational before September of this year which is the time when tropical cyclones usually arrive at the Eastern coast of India. (Para 3.6.7)

The Committee, however, observes that only one bridge was constructed in 2016-17 and substantial number of shelters, roads, bridges and Saline Embankments are still under execution in Phase I of NCRMP. The Committee recommends that the Ministry should pursue the States for completion of this Phase at the earliest. In Phase-II, several works are under various stages of finalization, environment clearance, DPR and tendering. The Committee strongly recommends that all the stages of processing should be completed as per schedule. (Para 3.6.8)

CIVIC ACTION PROGRAMME AND MEDIA PLAN

The Committee feels that activities under Civic Action Programme and Media Plan can go a long way in ensuring peace in J&K. The Committee, therefore, recommends that all the pending bills of implementing agencies be cleared at the earliest and the Ministry should prepare a revival plan of DD Kashir and earnestly implement it in a time bound manner. Efforts should be made to revive DD Kashir at the earliest. (Para 3.7.2) 75

CENSUS, SURVEY AND STATISTICS/REGISTRAR GENERAL OF INDIA

The Committee takes strong exception to poor utilization of funds by the Ministry under the Head Census, Survey and Statistics/Registrar General of India. In some plan schemes, particularly GIS Based Town Mapping and Improvement in Vital Statistics System, the utilization by mid February 2017 was quite low. Under the GIS Based Town Mapping scheme, out of the BE allocation of ` 5.31 crore, the Ministry was able to spend only ` 4 lakh and nothing could be spent out of the ` 49 lakh allocated for Training Unit. This shows poor handling of the schemes. The Committee fails to understand such poor utilization of budgetary allocation and feels that the Ministry is not serious about implementing these schemes. The Committee recommends that the Ministry should improve its fund absorption capacity under this head and remove all procedural delays that inhibit the performance of the Division concerned. (Para 3.8.3)

HOME GUARD

The Committee is constrained to note the poor state of the Home Guards throughout the country. The Committee is deeply anguished to note that some of the States are paying duty allowance as low as ` 60 per day to the Home Guards. This is despite the Supreme Court's order on increasing the duty allowance of Home Guards to minimum of the pay to which the police personnel are entitled. The Committee is not satisfied with the reply of the Ministry that it does not have details of implementation of the Supreme Court's order by the States. The neglect of this issue by the Ministry is reflective of corresponding neglect of the Home Guards by the States. The Committee, therefore, recommends that the Centre should compile and maintain State-wise data of duty allowance being paid to the Home Guards and strive towards bringing uniformity in the rates of duty allowance paid by the States. The Committee also recommends that the Ministry should direct the States to implement the Supreme Court's order in letter and spirit. (Para 3.10.3)

DEMAND NO. 48 – POLICE

The Committee notes that only ` 5897.24 crore have been utilized (till 10th February, 2017) under capital head of Demand No. 48 which is only 62% of the amount allocated at RE stage in 2016-17. The Committee apprehends that the Ministry may not be able to utilize the remaining ` 3611.45 crore fully by the end of the current fiscal year. The Committee, therefore, recommends that in future efforts should be made to utilize the outlays fully under capital head, viz., creation of Police infrastructure and also on Revenue Head on Modernisation of Police Forces and SRE. (Para 4.1.6)

ESTABLISHMENT EXPENDITURE OF CAPFS, CPOS AND OTHER ORGANISATIONS

CENTRAL ARMED POLICE FORCES

The Committee observes that most of the CAPFs were able to utilize the allocated funds optimally except NSG which was able to utilize only 65% of the funds allocated at RE stage in 2016-17 upto 15.02.2017 for the purpose of Establishment Expenditure. The Committee also notes 76 that the allocation granted to National Security Guards (NSG) in BE 2017-18 is almost 28% short of what was projected by the Ministry. NSG is to be developed as an elite Counter Terrorism agency for which it requires urgent modernization and expansion of its warfare capabilities. This can only be achieved when sufficient funds are allocated and optimally utilized by the Ministry. The Committee points out that in order to justify the demand for higher allocation in the next fiscal, it is pertinent to achieve optimal utilization in the previous financial year. The Committee, therefore, strongly recommends that the Ministry must find out the reasons for lower utilization of allocated fund and review the status of all the pending proposals due to which funds were not utilized fully and clear them at the earliest. (Para 4.2.4)

NATIONAL INTELLIGENCE GRID (NATGRID)

The Committee does not accept the Ministry's contention that non-availability of qualified professionals is the reason behind keeping the posts vacant for such a long time and the consequent surrendering of funds at RE stage. In a country like India which is known worldwide for its highly skilled IT professionals, it is simply not acceptable that the non-availability of professionals was the reason for not filling up the post of 35 consultants. The Committee feels that either the Ministry failed to publicize the posts widely or the remuneration being offered was not attractive enough. The Committee recommends that the Ministry needs to clear the confusion looming large over the NATGRID's future by completing the construction work of its main building at the earliest. Meanwhile, the Ministry must re-publicize the posts as widely as possible along with offering remuneration package commensurate to that being offered in the private sector to attract the most qualified professionals. (Para 4.3.3)

The Committee notes that final approval for implementation of Entity Extraction, Visualization & Analytics (EVA) System has been granted in January, 2017. The Committee recommends that implementation of EVA system may now be completed without any further delay. (Para 4.3.4)

CENTRAL POLICE ORGANISATIONS

The Committee is constrained to express its displeasure and observes that most of the CPOs failed to utilize their capital funds optimally. While 73% funds under capital head were surrendered at RE stage in 2016-17, only 32% of the reduced allocation could be utilized by all the CPOs due to non-approval of various proposals for procurement of machinery, equipment and motor vehicles. The Committee is anguished to find the insincere approach adopted by the CPOs towards creation of capital assets and strongly recommends that Ministry of Home Affairs must introspect about the reasons for non-approval of various proposals. The Committee cautions that in the upcoming fiscal, capital funds should be spent optimally and the funds allocated should not remain underutilised due to procedural delays. (Para 4.4.5)

CRIMINOLOGY FORENSIC SCIENCE

The Committee cannot understand why allocation to the tune for ` 11.72 remained un- utilized under the capital head in RE 2016-17 which was earmarked for upgrading laboratories 77 of criminology forensic science Head. The Committee recommends that Ministry should strive to create and upgrade forensic capabilities of premier investigation agencies and grant prompt approvals for such purposes. There should be no such under utilisation. (Para 4.5.3)

BORDER INFRASTRUCTURE & MANAGEMENT

The Committee observes with concern that the Ministry was unable to procure the boats for coastal security as per the schedule. The Committee is aware that the Ministry was unable to implement Phase -II of the Coastal Security Scheme on time and it has been granted extension for 4 years till March, 2020. This is a total failure on the part of the Ministry in not completing Phase - II and this is compounded by the under utilisation of funds again this year. The Committee cautions the Ministry that foolproof coastal security is sine qua non for overall security of the country and if the Ministry keeps on procrastinating on the implementation of security related projects and does not procure items on time, it may not be able to complete this phase of CSS even within the extended timeline. The Committee, therefore, strongly recommends that implementation of Coastal Security Scheme may be undertaken with utmost priority and the Ministry should complete the pending procurement of boats within the first half of the upcoming fiscal year. (Para 4.6.4)

INDIA-BANGLADESH AND INDIA-PAKISTAN BORDER

The Committee is concerned at the state of affairs of construction/upgradation of infrastructure along India-Nepal Border (INB). In Bihar part of INB, only 19.1 km of roads were constructed throughout the year, while only 21.3 km of roads were completed in Uttar Pradesh. The Ministry took the plea of pending land acquisition as the reason for this extremely slow pace of construction. The Committee feels that if pace of road construction does not improve then it would take a decade more to complete the construction of roads along INB. The proposal was approved long back in 2010. The Committee is surprised to note that even such important border infrastructure projects are delayed due to the problem of land acquisition and yet the Ministry failed to find a solution to this persistent problem that plagues almost all the border infrastructure projects throughout the country. The Committee feels that the Ministry needs to find a permanent solution to the problem of land acquisition in border areas in the national interest. The Ministry may hold meetings with all the Governments of Border States where land acquisition has delayed implementation of projects and make all out efforts to find a permanent solution to this problem. (Para 4.6.19)

The Committee is anguished to note that out of the plan allocation of ` 1418.97 crore for border fencing and roads construction along India-Bangladesh border, during 12th Five Year Plan, only ` 887.79 crore (62.56%) of the plan allocation could be spent. The Committee was also dismayed to observe the extremely tardy progress of border infrastructure projects with completion of only around 15 km of fencing, 26 km of roads, 46 km of flood lights and just 11 border outposts during 2016. The Committee is aware of the issues that affect construction projects along India - Bangladesh border; however, the inability of the Ministry to resolve these issues 78 for so long seems unjustifiable. Even the Supreme Court expressed its strong displeasure at the manner in which border fencing projects languish along IBB and lack of any specific plan of the Ministry to complete it. The Committee, therefore, recommends that the Ministry should chalk out a strict and specific plan, while adhering to the timeline stipulated by the Supreme Court, for completion of all the infrastructure projects along IBB and devote its sincere efforts to plug all the gaps on the border that were still being exploited for illegal cross border influx and smuggling. (Para 4.6.20)

BORDER AREA DEVELOPMENT PROGRAMME

The Committee notes that a major chunk of BADP funds are being spent on construction of roads, bridges and social infrastructure. Though infrastructure creation is important for overall development of border areas, however, this must not come at the neglect of other areas of development, particularly education, health and skill development. The Committee recommends that Ministry of Home Affairs should review the Annual Plans of States for spending BADP funds and guide them towards incurring expenditure in a broader arena so that no area of development gets neglected. (Para 4.7.4)

POLICE INFRASTRUCTURE

INFRASTRUCTURE FOR CAPFS INCLUDING ASSAM RIFLES AND NSG

The Ministry of Home Affairs apprised the Committee that ` 1181.58 crore of additional fund has been provided under police infrastructure head to sustain the increased pace of construction work in respect of all the organisations involved. The Committee, in view of the Ministry's submission, recommends that the increased pace of construction must be maintained in the next fiscal year and complacency should not creep in. The Committee hopes that the Ministry would be able to judiciously utilize the enhanced allocation for the intended purpose within the stipulated timeframe. (Para 4.8.5)

The Committee expresses its concern over the non-achievement of physical and financial targets on the front of constructing Residential buildings under the police infrastructure head. Only 1347 houses were constructed against the target of 4660 which is just 29% during the first three quarters of 2016-17. Even the pace of constructing barracks is far short of the annual target as only 37 barracks have been completed against the target of completion of 77 barracks. This is inconsistent with the Ministry's argument that additional funds were required due to increased pace of construction work. The Committee also notes that out of the targeted 24644 residential and non-residential buildings to be built during the 12th Five Year Plan period, only 13601 were constructed. Thus, the achievement of only 55% of the set target during the 12th FYP is unjustified and reflects overwhelming underperformance of the Ministry. The Committee, therefore, recommends that all the projects under this head must be fast tracked and completed at the earliest without any further delay. There should be an effective monitoring mechanism in place. (Para 4.8.6) 79

The Committee notes that less than one-third physical target was achieved after spending more than two-thirds of the funds allocated. This is indicative of a sorry state of affairs as actual expenditure percentage does not correspond with the percentage of physical achievement. The Committee feels that wasteful expenditure, unrealistic planning and imprudent budgeting could be the likely reasons for this anomaly. The Committee, therefore, recommends that the Ministry must look into this anomaly and examine the factors responsible behind this inconsistency between the physical and financial achievement of targets and adopt a more realistic planning and prudent budgeting for the set targets in future. (Para 4.8.7)

DELHI POLICE

The Committee is worried as to how Delhi Police will be able to manage its operations efficiently with such a huge shortfall of ` 4743.93 crore in allocation in BE 2017-18 as compared to the projected demand to the tune of ` 11093.21 crore. The Committee recommends that the Ministry should direct Delhi Police to utilize the allocated amount judiciously and subsequently pursue the Ministry of Finance for additional allocation at RE stage to offset this huge shortfall. (Para 4.9.4)

The Committee is constrained to observe that Delhi Police has outstanding bills of ` 1659.81 crores to be paid to CAPFs and Police Forces of other States deployed in NCT of Delhi for law and order duties. The situation seems even more worrisome when one looks at the fact that some of these bills are pending since 2005. The Committee feels that this is because of lackadaisical approach of the Ministry towards clearing the dues. Most of the bills pending are of CAPFs and the Ministry has to just adjust these funds from the head of Delhi Police to those of CAPFs. The Committee fails to understand why these bills have been allowed to languish unsettled for such a long period. The Committee, therefore, strongly recommends that all the outstanding bills to be paid by Delhi Police to other Police Organizations should be cleared without any further delay by projecting an allocation for this settlement at RE stage in 2017-18. (Para 4.9.5)

The Committee takes a serious note of the extremely low allocation being provided for the especially important Scheme of Modernisation of Traffic and Communication Network of Delhi Police. The Committee wonders how the task of developing an efficient traffic management and communication Network in a city like Delhi is possible with the meagre amount of ` 1.66 crore. The Committee feels that such low allocation cannot even give a decent head-start to this Scheme if Delhi Police plans to implement it in letter and spirit. The Committee recommends that Delhi Police should prepare a detailed plan to improve the traffic management and communication network in Delhi including modernisation and technology. The Ministry should seek allocation at RE stage for this purpose. (Para 4.9.7)

The Committee is disappointed to observe the poor achievement of financial targets by the Delhi Police. Under all the Schemes, including Scheme for Safety of Women, substantial part of 80 funds allocated in BE 2016-17 were surrendered at RE stage presumably due to poor expenditure in the first half of 2016-17. Even then, the utilization of funds remained poor and a mere 42% of RE allocation was utilised by the end of December, 2016. Delhi Police needs to realize the importance of these Schemes which are essential for developing Delhi as a safe and convenient place to live. The Committee feels that Delhi Police's failure to utilize even such low amounts of funds points to a serious lack of capacity for fund utilization. The Committee, therefore, recommends that the division concerned in MHA should periodically review the financial performance of Delhi Police based on which the Ministry should make efforts towards improving the fund utilization capacity of Delhi Police. (Para 4.9.8)

MODERNISATION OF POLICE FORCES (MOPF)

The Committee is constrained to note the trend of declining allocations under the Modernisation of Police Forces Scheme for the States. As compared to ` 1341.6 crore in 2013-14 and ` 1397.5 crore during 2014-15 only ` 595 crore was allocated during 2015-16 and 2016-17. This trend of reduced allocation under the scheme has come despite various evaluation studies and impact assessment reports highlighting the positive difference the scheme has created in improving the operations and infrastructure of State police forces throughout the country. Though the allocation for 2017-18 has been increased to ` 769 crore, the Committee feels that it is still not sufficient to meet the needs of modernizing the State Police Forces. The Committee warns that if the Central Government ignores the urgent need to modernize the State Police Forces, it would be at the cost of the nation's security and recommends that the Ministry should make all out efforts for obtaining approval of Cabinet Committee on Security (CCS) for continuation of this scheme beyond 31st March, 2017 and its sincere implementation. (Para 4.12.3)

The Committee notes that no funds were granted under the plan head of Modernisation of Police Forces Scheme, which provides for police infrastructure and training purpose, during the last two yea` The Committee was apprised by the Home Secretary that the primary reason for less allocation for funds under this scheme was the misuse of non-plan funds meant for mobility, communication, weapons & equipments by the States for procuring a huge number of vehicles. The Committee feels that in such a scenario, the logical step would have been to either curtail non-plan funds or issue directions to States allowing only a small part of funds for procuring vehicles. However, non-allocation of any plan funds during the last two years does not seem to be justifiable. The Committee is unable to understand as to why this blatant misuse occurred in the first place despite MHA releasing funds after obtaining utilisation certificates from the States. The Committee, therefore, recommends that the Ministry should prepare detailed guidelines under this Scheme, if and when approval is granted for its continuation, and initiate appropriate measures to check this misuse by limiting the amount of funds that can be used for any single purpose where misuse can occur. The Committee also recommends that the Ministry should encourage expenditure on weapons, infrastructure projects and communication & 81 forensic equipment and henceforth provide more funds for capital expenditure while directing the States to manage the revenue expenditure from their own contributions under this scheme. (Para 4.12.4)

The Committee hopes that the Cabinet Committee on Security will take a broad view of necessity of Modernisation of Police Forces and approve the Umbrella Scheme on Modernization of Police Forces of States and UTs and Security Related Expenditure (SRE) for J&K, North-East and Left Wing Extremism (LWE) Areas. The Committee, therefore, recommends that the Ministry should continue pursuing this matter and seek an early approval of CCS so that implementation of Scheme can be started from the forthcoming fiscal itself. (Para 4.12.6)

OVERALL ASSESSMENT

The Committee also notes that some UTs like Daman & Diu and Lakshadweep Islands had to surrender certain amount of funds at RE stage in 2016-17. This not only points towards poor fund absorption capacity and underperformance but also led to grant of lower allocation in BE 2017-18 as compared to BE 2016-17. The Committee recommends that the Ministry must meticulously monitor the fund utilization status of these UTs on a quarterly basis and exhort them to diligently work towards faster execution of projects, whenever they lag behind, so as to achieve better utilization of funds in the first half of FY 2017-18. (Para 5.1.5)

The Committee recommends that in view of the previous track record the demand of the UT of Chandigarh for additional 1298.00 crore must be considered positively at RE Stage and the amount of ` 4312.40 crore, which has been already allocated, may be utilized fully. (Para 5.1.7)

UNION TERRITORIES WITH LEGISLATURE

The Committee also feels that in comparison to the demand projected by the NCT of Delhi and Puducherry, the BE allocation is meager and recommends that this needs to be substantially enhanced at RE stage as their utilization percentage (above 90%) is also highly satisfactory. (Para 5.2.5)

The Committee notes that against the projected central assistance to Delhi of amount ` 1500.00 crore only `412.99 crore has been given in the BE 2017-18 and recommends that more amount should be given as central assistance. Moreover, for additional central assistance for externally aided programme (EAP) only ` 0.01 crore has been granted against the projection of ` 200.00 crore which should also be increased and the Committee should be informed about the details of such EAPs. (Para 5.2.7)

The Committee recommends that more amounts should be allocated under the scheme EAP for coastal disaster risk reduction project. (Para 5.2.9) 82

CRIME AND LAW AND ORDER SITUATION IN THE NCT OF DELHI

The Committee expresses apprehension that such software should not actually reduce the physical movement and active patrolling of the police on ground level and recommends that proper assessment with regard to its impact may be done before launching. The Committee also strongly recommends that Delhi Police has to be more responsive towards women's safety in the NCT of Delhi. (Para 5.3.2)

TRAFFIC CONGESTION IN DELHI

The Committee feels that the Delhi traffic congestion has become quite alarming and the Delhi Police has failed to implement any significant measures to improve the situation. The Committee takes note of the choked roads in Delhi which makes evacuation of Protected Persons very difficult during traffic congestion. The Committee also observes that a huge number of vehicles are getting registered every day in the Capital and presence of roundabouts on various cross-roads instead of traffic signals which cause congestion. The Committee, therefore, recommends that the Delhi Police needs to prepare a meticulous traffic management plan for Delhi and allocate adequate funds for addressing the issue of traffic management. The Committee also recommends that urgent measures should be taken for managing the city traffic in a better way with construction of more arterial roads and parking bays, declaring some roads as one-way, devising effective emergency evacuation measures for the protected persons and stringent measures against traffic violators. (Para 5.3.5)

DEVELOPMENT ISSUES PERTAINING TO THE UT OF ANDAMAN AND NICOBAR ISLANDS

The Committee notes the written replies furnished by the Ministry on all the above issues and observes that most of them are pending since long and recommends that action should be taken on them on priority basis. (Para 5.4.2)

DEVELOPMENTAL ISSUES PERTAINING TO THE UT OF DAMAN AND DIU

The Committee recommends that the above developmental issues should be duly considered by the Ministry and action be taken on priority basis. (Para 5.5.2)

DEVELOPMENTAL ISSUES PERTAINING TO THE UT OF DADRA AND NAGAR HAVELI

The Committee recommends that all of the above mentioned issues are crucial for the development of the UT of Dadra and Nagar Haveli and the Ministry should address them without any further delay. The Committee also recommends that adequate Budgetary provisions should be made for the purpose. (Para 5.6.2)

DEVELOPMENTAL ISSUES PERTAINING TO THE UT OF LAKSHADWEEP

The Committee observes that as stated by the representative of the Lakshadweep administration only three desalination plants have been approval and the remaining three are still pending. In view of this, the Committee strongly recommends that work pertaining to these 83 three which have been already approved should start immediately without waiting for approval of the remaining three. The Committee realizes that at present Lakshadweep is completely dependent on rain water for drinking purpose. Therefore, provision of safe drinking water is the most urgent need of the Island. The Committee strongly recommends that construction work of all the six proposed plants should begin on priority without any further delay. The budgetary allocation of ` 226 crore should be fully utilized for the same purpose and if need be more funds should be granted at RE stage. (Para 5.7.2)

Regarding the construction of the residential buildings, the Committee observes that ` 24 crore has been allocated. The Committee recommends that proper assessment of the actual shortage of residential houses should be made and all proposed units should be constructed in the fiscal year 2017-18 taking into account that construction of a building takes around 18 months in Lakshadweep and work for some houses has already started. (Para 5.7.3)

The Committee recommends that the transit accommodation at Calicut should be made functional immediately. The issues that are coming in the way may be sorted out without any delay. (Para 5.7.4)

The Committee observes that though the BSNL is augmenting the satellite bandwidth and it would be operational to a certain extent by March, 2017, yet it is not going to be the final solution. Therefore, the Committee recommends that for better network connectivity, use of submarine optical fiber should be explored as suggested by the TRAI. (Para 5.7.5)

The Committee notes that at present the Health Insurance Scheme aims at only BPL families. Excluding Government employees and their wards people who are left out would be just around 12,000. The Committee recommends that as suggested by the M.P. from Lakshadweep, the Ministry should explore the possibility of covering all citizens by clubbing together the allocations made for medical reimbursement and health insurance schemes. (Para 5.7.6)

The Committee notes that there are several vacancies in all Groups of Government services. The UPSC has to fill up the vacancies in groups A & B and for C & D posts the Island administration has to take steps. The Committee suggests that the MHA should coordinate in this regard so that these vacancies are filled up soon. Moreover, as discussed in the meeting of the Committee held on the 16th January 2016 the Committee strongly recommends that the MHA should also take immediate steps to fill the posts of specialist doctors in the Island that have been lying vacant for the past 13 years. (Para 5.7.7)

The Committee notes that supply of ration under PDS has been reduced after implementation of NFSA causing immense hardship to the people. The LIT has neither its own rice production nor a dependable market. Therefore, the Committee recommends that a feasible solution should be immediately found for meeting the rice scarcity. The Committee further recommends that all constraints in achieving 100% LPG coverage under Ujjwala Yojana should be removed so that every household will get a LPG connection. (Para 5.7.8) 84

The Committee in view of the detailed discussions held on the 16th January, 2017 and the 28th February, 2017 emphasizes that proper utilization of the allocation made is an absolute necessity so that it does not get reduced at RE stage. The Committee also took note of several other issues like promotion of tourism and developing infrastructure for the purpose, exploring participation of private sector through PPP mode in shipping, transport and tourism sectors, capacity addition of airplanes, increasing air connectivity, developing night landing facilities, installation of 12,000 bio degradable toilets, improving higher education, better harnessing of renewable energy sources, exploring diverse livelihood opportunities, improving existing harbour facilities, opening of state of the art marine products processing units and surveillance/periodic patrolling of uninhabited islands, etc. The Committee would however address all the issues pertaining to UT of Lakshadweep in a separate report. (Para 5.7.9)

DEVELOPMENT INITIATIVES IN JAMMU AND KASHMIR

The Committee notes that under the ` 80000 crore Prime Minister's Development Package for J&K, several projects were initiated by the Ministry; however, most of the projects, namely, project for creation of jobs, transit accommodations, one time settlement of 36,384 families from Pakistan occupied Kashmir (POK) and Chhamb Displaced Persons and raising of IRB battalions, were still under progress and little outcome was achieved. Observing this pattern of poor outcome in the past twelve months, the Committee recommends that the Ministry should intensify its efforts to achieve measurable outcome under the PM's Development Package by speeding up the work in the upcoming fiscal year and implementing all the projects at the earliest. The Committee also desires that the Ministry may apprise the Committee about the details of expenditure incurred under various heads out of ` 80000 crore and the actual physical and financial achievements against set targets under this Package. (Para 6.1.2)

INTERNAL SECURITY ISSUES

The Committee does not share the perception of the Ministry that the overall internal security scenario remained under control during 2016. While the terrorism in the hinterland of the country and Left Wing Extremism remained comparatively muted during 2016, the opposite is however true in the case of cross border terrorism in J&K which remained on the boil throughout the year 2016 due to a number of terrorist attacks, and huge upsurge in number of infiltration attempts (364 in 2016 as compared to 121 in 2015). A new trend of terrorist violence that is visible is targeting of security establishments of CAPFs and Armed Forces by the terrorists. The Committee is constrained to note that 82 personnel of security forces were martyred last year. At the same time, the Committee is anguished at the vulnerabilities and loop holes in security of the establishments of the Forces exposed by a series of terrorist attacks that occurred in 2016. The Committee recommends that the Ministry must put rigorous efforts to completely stop infiltration from across the border and prevent all types of terror activities in J&K. The security of the establishments of the forces should be tightened and the incidents of attacks on establishments of the forces should not be allowed to recur. In this regard, the Committee 85 reiterates its recommendations given in Para no. 3.1.5 on Pathankot Airbase Attack in its 199th Report on Action Taken by Government on the Recommendations/Observations contained in the 197th Report on Demands for Grants (2016-17) of the Ministry of Home Affairs which is as under:

"3.1.5 Despite the several steps reportedly taken by the Government to strengthen the security measures, it has comprehensively failed to prevent recurrence of such attacks that took place at Pampore, Uri, Baramula, Handwara and Nagrota. The Committee observes that the Government has not learnt any lesson from the Pathankot attack. The Committee, therefore, recommends that there remains an urgent need to further strengthen the security network and plug the serious gaps in security establishment and intelligence gathering/sharing that have come to the fore in the recent attacks." (Para 6.2.7)

The Committee is aware of the disturbing trend of recruitment and training of local youth by the militants in the light of the numerous infiltration attempts foiled by the security forces. There has been a rise in the number of law & order incidents, particularly incidents of stone pelting which seems to have become a regular feature in some parts of Kashmir. Numerous incidents of picketing of police stations and snatching of rifles from police and para-military personnel point towards local sourcing of arms. The Committee feels that there is a sinister and complex connection between the simultaneous rise in stone pelting incidents and fidayeen attacks on the establishments of security forces. While the law & order incidents have kept the security forces busy, the militants meanwhile have found time to reorganize themselves and perpetrate terrorist attacks on the forces. The Committee recommends that the Ministry must work towards comprehensively breaking this nexus through a multi-pronged strategy that encompasses preventing the youth from joining the militant ranks, choking the financing and supply of arms to terrorist outfits and simultaneously launching counter insurgency operations throughout the Kashmir region to identify and capture the existing militants. (Para 6.2.9)

The Committee is constrained to observe that lack of financial resources is becoming a reason for casualty of valuable lives of police and CAPF personnel which are being lost in the battle against Left Wing Extremism. The Committee feels that bullet-proof vehicles would not be safe or sufficient for use in LWE areas. On the other hand, the Ministry feels constrained to procure advanced equipment due to lack of financial resources. In such a scenario, the Committee recommends that the Government should explore the opportunities created by the Make in India programme and develop indigenous vehicles. The Committee also recommends that in the meanwhile, the Ministry should explore other measures including import of suitable vehicles. (Para 6.2.12)

ONLINE REGISTRATION UNDER FOREIGN CONTRIBUTION REGULATION ACT

The Committee feels that several organizations which are functioning in the remote parts of the country may not be fully aware about the online process of application and renewal of 86

FCRA registration and wider publicity should have been given to the new process through print and electronic media. The Committee takes note of the fact that a huge number of applications for renewal of FCRA registration are still pending for renewal. The Committee, therefore, recommends that the Government may facilitate genuine organizations that could not apply online due to lack of awareness and renew their registrations without further delay so as to help them smoothly run their operations. (Para 6.3.3)

ONLINE CHILD SEX ABUSE IN INDIA

The Committee is anguished to note the severe under-reporting of crimes related to online child sex abuse in India. Firstly, NCRB does not maintain any separate record of cyber crimes against children. Secondly, whatever data is collected by NCRB presently, however rudimentary it may be, provides an insight into the state of law enforcement in the country as it is unbelievable that in most of the States there is no incidence of any online child sex abuse. The data indicates the extremely poor law enforcement in relation to these crimes as it only collects information of reported cases and it fails to give a reflection of true prevalence rate of such crimes as it does not capture the actual number of incidents. The Committee recommends that law enforcement agencies need to be made aware of the challenging aspects of cyber-crimes against children and their capacity to record and initiate action against such crimes needs to be urgently strengthened. The Committee also recommends that from 2017 itself

NCRB should collate all the instances of online child sex abuse and other cyber-crimes against children under a separate category so that performance of law enforcement agencies on this aspect can be observed. (Para 6.4.3)

The Committee is aware of the fact that child sexual abuse and related crimes remain overwhelmingly under-reported in this country due to associated stigma and propensity of parents/ guardians to not involve police in these matters. The Committee feels that the process of reporting such crimes needs to be simplified and identity of children involved be protected to ensure that such crimes do not go unreported. The Committee recommends that the Ministry should work towards enhancing capacities of the police forces and cyber forensic agencies and simplifying and strengthening cybercrime investigations involving children. The Committee also recommends that all States may be requested to create an Online Cyber Crime Reporting Platform under Cyber Crime Prevention against Women and Children Scheme and publicise it adequately through print, electronic and social media to encourage reporting of such crimes. The Ministry may also provide adequate funds specifically for this purpose under the Modernisaton of Police Forces Scheme. (Para 6.4.4)

SAFETY OF WOMEN

The Committee notes that Nirbhaya Fund, which was given ` 1000 crore, remains severely underutilized. The Committee is surprised that the Ministry is yet to chalk out proper schemes for implementation under this Fund. As of now, the funds are being used for miscellaneous 87 expenditure only which does not address the safety and security concerns of women. The Committee recommends that the Ministry, after due research and consultations with States/UTs, should prepare proper Schemes with measurable outcome indicators. (Para 6.5.5)

HIMMAT APP

The Committee notes the submission of Delhi Police regarding the status and number of users of Himmat App and feels that this App has failed to serve the purpose for which it was introduced with a lot of fanfare. The Committee finds that complex registration process and non- availability of App in Hindi have restricted the number of users of this App. The fact that the App had only 30821 registered users in a city with a population of almost 19 million reflects upon the comprehensive failure of this App to function as an SOS helpline for the women. The Committee also feels that without adequate publicity among the target group, this App will not be able to see any increase in number of users. The Committee, therefore, recommends that Delhi Police should redesign this App by simplifying it and either remove the registration process or simplify it as much as possible by seeking only the minimum details required. The Committee also recommends that Himmat App must be made available in Hindi as well to enable a large number of women to use this App. (Para 6.6.2)

The Committee also feels that due publicity was not given to this App and better publicity in more unconventional ways and through social media platforms can help increase the number of use` The Committee, therefore, recommends that Delhi Police must hire the services of a private digital marketing agency to publicize this App among the target users, and give a specific target to the agency of achieving at least a million downloads by the end of 2017.(Para 6.6.3)

LONG TERM VISA (LTV) TO MINORITY COMMUNITIES FROM PAKISTAN, BANGLADESH AND AFGHANISTAN

The Committee is surprised by the notification notifying the reduction of application fee specifically for minority community only for LTV. The Committee feels that the Ministry should have waited for the passage of the Bill by the Parliament before going ahead with the notification. While the Committee appreciates the measures taken by the Ministry as mentioned in Para 6.7.1, the Committee recommends that, notifications should be issued after The Citizenship (Amendment) Bill, 2016 is passed by the Parliament. (Para 6.7.4)

MINUTES 90

VIII

EIGHTH MEETING

The Committee met at 3.00 P.M. on Monday, the 27th February, 2017 in Main Committee Room, Parliament House Annexe, New Delhi.

MEMBERS PRESENT 1. Shri P. Chidambaram — Chairman RAJYA SABHA 2. Dr. V. Maitreyan 3. Shri Shamsher Singh Manhas 4. Shri Majeed Memon 5. Shri Derek O'Brien 6. Shri Sitaram Yechury LOK SABHA 7. Shri Prem Singh Chandumajra 8. Shri S. Selvakumara Chinayan 9. Shri Adhir Ranjan Chowdhury 10. Dr. (Smt.) Kakoli Ghosh Dastidar 11. Shri Ramen Deka 12. Shri Prataprao Jadhav 13. Shri Mallikarjun Kharge 14. Shri Kaushal Kishore 15. Shri P. Nagarajan 16. Shri Baijayant "Jay" Panda 17. Shri Natubhai Gomanbhai Patel 18. Shri Mohammed Faizal PP SECRETARIAT Shri P.P.K. Ramacharyulu, Additional Secretary Shri Vimal Kumar, Director Dr. (Smt.) Subhashree Panigrahi, Joint Director Shri Bhupendra Bhaskar, Deputy Director Shri Pritam Kumar, Assistant Director

90 91

WITNESSES

Representatives of Ministry of Home Affairs

1. Shri Rajiv Mehrishi, Home Secretary

2. Smt. Sanjeevanee Kutty, Secretary (BM)

3. Shri Prabhas Kumar Jha, Secretary (OL)

4. Shri Jaideep Govind, Additional Secretary

5. Shri M. Gopal Reddy, Additional Secretary

6. Shri Bipin Bihari Mallick, Additional Secretary

7. Shri Rabindra Panwar, AS & FA

8. Shri Sailesh, AS & RGI

9. Shri V.K. Choubey, Pr. CCA/AS

10. Shri Rajesh Kumar, CCA

11. Smt. Saheli Ghosh Roy, Joint Secretary

12. Dr. R.K. Mitra, Joint Secretary

13. Shri S.K. Saxena, Joint Secretary

14. Shri Praveen Vasishta, Joint Secretary

15. Shri Gyanesh Kumar, Joint Secretary

16. Shri Satyendra Garg, Joint Secretary

17. Shri Satpal Chouhan, Joint Secretary

18. Shri Kumar Alok, Joint Secretary

19. Shri P. K. Srivastava, Joint Secretary

20. Shri Mukesh Mittal, Joint Secretary

21. Smt. Bina Prasad, Joint Secretary

22. Shri Ajay Ramesh Sule, Joint Secretary

23. Shri S.K. Jindal, Joint Secretary

24. Shri Bipin Behari, Joint Secretary

25. Shri Dalip Kumar, Joint Secretary

26. Shri Pradeep Gupta, Joint Secretary

27. Shri V. Shashank Sekhar, Joint Secretary

28. Shri T.V.S.N. Prasad, Joint Secretary 92

Representatives of Intelligence Bureau 1. Shri Rajiv Jain, Director 2. Shri Jagmohan, Joint Director Representatives of Border Security Force 1. Shri K.K. Sharma, DG 2. Shri Venugopal V., AS & FA 3. Shri Rajeev Krishna, IG (Ops) Representatives of LPAI Shri Y.S. Shehrawat, Secretary (Chairman) Representatives of NIA 1. Shri Sharad Kumar, DG 2. Shri Alok Mittal, IG Representatives of NATGRID 1. Shri A.K. Patnaik, CEO 2. Smt. Maushumi Rudra, JS & FA Representatives of CPWD 1. Shri M.C. Bansal, ADG (Border)

2. Shri Pawan Kumar Gupta, SE

Opening Remarks

2.0 The Chairman welcomed the Members and apprised them of the agenda for the meeting i.e., to hear presentation of the Home Secretary on Demands for Grants (2017-18) of the Ministry of Home Affairs.

2.1 The Chairman informed the Member that in the meeting, the Committee would discuss Demand No. 46 pertaining to the Ministry of Home Affairs. The demands pertaining to Police Forces and UTs would be discussed in the next sitting scheduled for the next day.

Presentation by Ministry of Home Affairs

3.0 When the witnesses arrived, the Chairman asked the Home Secretary to make presentation on the General Budget part of Demands for Grants of the Ministry with special emphasis on projected demands submitted by the Ministry and funds allocated, financial and physical targets set and achieved during 2016-17 and reasons behind under-utilisation of funds in that year, if any. The Chairman also asked the Home Secretary to brief the Committee about the status of various schemes of MHA which are implemented by the State Governments with the help of central funding and also about their fate after withdrawal of central funding. 93

3.1 The Home Secretary informed the Committee that from year 2017-18 the difference between the plan and the non-plan expenditure has been done away with. He briefed the Committee that there was an increase of 10% in the allocation under Demand No. 46 in comparison to the financial year 2016-17 which was largely due to the increase in salaries.

3.2 Thereafter, the concerned Joint Secretaries of MHA made power point presentation covering issues related to the overall security scenario in the country, development initiatives and security situation in J&K, LWE affected areas and North Eastern Region, Disaster Management, Border Management, Visa and Citizenship Issues, Police Modernisation and measures taken to promote usage of Hindi as an Official Language. Additional Secretary and Financial Advisor of the MHA, thereafter, made a presentation on the Overall Budget allocation and expenditure of MHA pertaining to Demand No. 46.

4.0 Thereafter, the Chairman and Members of the Committee, sought clarifications on the following points:

(i) Recent blockade of the National Highway No. 2 connecting Manipur to Nagaland;

(ii) Tardy progress of pending infrastructure projects in border areas;

(iii) Reduction in application fee of Long-term Visa for minorities of neighbouring countries who faced religious persecution;

(iv) Reduced fund allocations under Modernisation of Police Forces Scheme;

(v) Provision of Mine Protected Vehicles to CAPFs in LWE affected areas;

(vi) Poor utilization of funds allocated for NATGRID;

(vii) Definition of Scheme and difference between activities under Scheme and Non-scheme heads;

(viii) Details and status of Naga Peace Accord; and

(ix) Status of implementation of schemes funded through Nirbhaya Fund to enhance women's safety and security in the country.

4.1 The Home Secretary and other officers of the Ministry clarified the issues raised by the Members. The Chairman then asked the Home Secretary to furnish replies to the unanswered queries in the meeting to be held on the next day.

5. A Verbatim record of the proceeding of the meeting of the Committee was kept.

6. The Committee then adjourned at 5.16 P.M. 94

IX

NINTH MEETING

The Committee met at 11.00 a.m. on Tuesday, the 28th February, 2017 in Main Committee Room, Parliament House Annexe, New Delhi.

MEMBERS PRESENT

1. Shri P. Chidambaram — Chairman RAJYA SABHA 2. Shri K. Rahman Khan 3. Dr. V. Maitreyan 4. Shri Shamsher Singh Manhas 5. Shri Majeed Memon 6. Shri Derek O' Brien 7. Shri R.K. Sinha LOK SABHA 8. Shri S. Selvakumara Chinayan 9. Shri Adhir Ranjan Chowdhury 10. Dr. (Smt.) Kakoli Ghosh Dastidar 11. Shri Ramen Deka 12. Shri Prataprao Jadhav 13. Shri Mallikarjun Kharge 14. Shri P. Nagarajan 15. Shri Baijayant "Jay" Panda 16. Shri Natubhai Gomanbhai Patel 17. Shri Mohammed Faizal PP 18. Shri Bishnupada Ray SECRETARIAT Shri P.P.K. Ramacharyulu, Additional Secretary Shri Vimal Kumar, Director Dr. (Smt.) Subhashree Panigrahi, Joint Director Shri Bhupendra Bhaskar, Deputy Director Shri Pritam Kumar, Assistant Director

94 95

WITNESSES

Representatives of Ministry of Home Affairs 1. Shri Rajiv Mehrishi, Home Secretary 2. Smt. Sanjeevanee Kutty, Secretary (BM) 3. Shri Jaideep Govind, Additional Secretary 4. Shri M. Gopal Reddy, Additional Secretary 5. Shri Bipin Bihari Mallick, Additional Secretary 6. Shri Rabindra Panwar, AS & FA 7. Shri V.K. Choubey, Pr. CCA/AS 8. Shri Rajesh Kumar, CCA 9. Shri Nitesh Kumar Mishra, CA 10. Smt. Saheli Ghosh Roy, Joint Secretary 11. Dr. R.K. Mitra, Joint Secretary 12. Shri S.K. Saxena, Joint Secretary 13. Shri Praveen Vasishta, Joint Secretary 14. Shri Gyanesh Kumar, Joint Secretary 15. Shri Satyendra Garg, Joint Secretary 16. Shri Kumar Alok, Joint Secretary 17. Shri P. K. Srivastava, Joint Secretary 18. Shri Mukesh Mittal, Joint Secretary 19. Smt. Bina Prasad, Joint Secretary 20. Shri Ajay Ramesh Sule, Joint Secretary 21. Shri S.K. Jindal, Joint Secretary 22. Shri Dalip Kumar, Joint Secretary 23. Shri Pradeep Gupta, Joint Secretary 24. Shri V. Shashank Sekhar, Joint Secretary 25. Shri T.V.S.N. Prasad, Joint Secretary 26. Ms. S. Chaudhuri, Director 27. Shri Amit Nirmal, Director 28. Shri Rakesh Mittal, Director 29. Shri A.V. Dharma Reddy, Director 96

30. Shri D.P. Tripathy, Director 31. Shri Man Singh, Director 32. Shri Prashant Nikam, Director Representatives of ITBP 1. Shri Krishna Chaudhary, DG 2. Shri Dipesh Juneja, IG 3. Smt. N. Upadhyay, FA Representatives of Border Security Force 1. Shri K.K. Sharma, DG 2. Shri Venugopal V., AS & FA 3. Shri Rajeev Krishna, IG (Ops) 4. Shri Praveen Rathore, DIG Representatives of Central Industrial Security Force 1. Shri O.P. Singh, DG 2. Shri Sudhir Kumar, DIG 3. Shri S. Dev Dutta Singh, DIG Representatives of NSG 1. Shri S.P. Singh, DG 2. Shri P.S. Phalnikar, IG 3. Shri Sanjeev Mishra, FA Representatives of Assam Rifles 1. Shri S. Chauhan, DG 2. Shri Dheeraj Chandola, CSO 3. Shri V. Fanai, I FA Representatives of SSB 1. Smt. Archana Ramasundaram, DG 2. Shri Anil Kumar Negi, IG 3. Shri Sanjeev Sharma, DIG Representatives of Delhi Police 1. Shri Amulya Patnaik, Commissioner of Police 2. Shri T.N. Mohan, Special Commissioner of Police 3. Shri Taj Hassan, Special Commissioner of Police 97

Representatives of CRPF 1. Shri K. Durga Prasad, DG 2. Shri S. Lakhtakia, ADG 3. Shri Deepak Mishra, ADG 4. Shri S.V. Date, IG 5. Shri Sunil Thorpe, DIG

Representatives of Lakshadweep 1. Dr. Tariq Thomas, Secretary

2. Shri Asar Pal Singh, Additional Resident Commissioner Representatives of Chandigarh Administration

1. Shri B. Shandilya, Deputy Resident Commissioner 2. Shri Anurag Agarwal, Home Secretary cum Finance Secretary

3. Shri Jitender Yadav, Special Secretary Representatives of Puducherry

1. Shri Manoj Parida, Chief Secretary 2. Dr. V. Candavelou, Secretary (Finance)

3. Shri G. Santhamurthy, Director Representatives of Daman and Diu

1. Shri J. B. Singh, Advisor to Administrator 2. Shri V. S. Malik, Secretary (Finance)

3. Shri Kishore Bamania, Joint Secretary (Finance) 4. Dr. S.D. Bhardwaj, Joint Director

Representatives of Dadra and Nagar Haveli 1. Shri U. K. Tyagi, DC

2. Shri Debender Dalai, CEO 3. Shri Ashok Kumar Mishra, Joint Secretary (Finance)

4. Shri S.S. Boya, Executive Engineer Representatives of Andaman and Nicobar Islands

1. Shri Anindo Mazumdar, Chief Secretary

2. Shri Raajiv Yaduvanshi, Principal Secretary, Andaman

3. Shri Sanjiv Khirvar, Secretary 98

Representatives of Delhi 1. Shri M.M. Kutty, Chief Secretary 2. Shri S. N. Sahai, Principal Secretary 3. Shri D.P. Dwivedi, Director (Planning)

4. Dr. B.K. Sharma, Advisor (Planning)

2.0 The Chairman welcomed the Members to the sitting of the Committee and informed them about the agenda of the meeting i.e. to hear the presentation of the representatives of the Ministry of Home Affairs on Demand for Grants (2017-18) pertaining to CAPFs, Delhi Police and Union Territories.

(At this stage witnesses were called in)

3.0 The Chairman then welcomed the Home Secretary and other officials to the sitting and informed them that the Committee would continue on its discussion from the previous day's meeting/proceeding. The Secretary and the concerned officers of the Ministry of Home Affairs then briefly replied to the queries raised by the Members in the previous day's meeting of the Committee which inter-alia included the Umbrella Scheme for Modernisation of Police Forces, Integrated Action Plan in LWE affected States, Long term Visa for migrants, Naga Peace Accord, criteria pertaining to classification of scheme and non- scheme, tardy pace of project implementation, significant amount of funds being surrendered etc.

3.1 The Home Secretary then requested the officer concerned to give the presentation on Demand No. 48 - Police, pertaining to the Central Armed Police Forces, Central Police Organisations and Delhi Police. The Officer concerned then, made presentation which covered various aspects like roles, jurisdiction, strength and deployment of CAPFs, welfare measures undertaken for them, allocation and trends of expenditure of funds, major Schemes under Demand No. 48, achievements of Delhi Police during 2016- 17, initiatives proposed by Delhi Police for 2017-18 and scheme-wise budgetary allocation to Delhi Police.

3.2 The Members then raised several queries related to CAPFs like housing satisfaction level of CAPFs, grievance redress mechanism for CAPF personnel, working conditions of personnel and instances of suicides by CAPF personnel.

The Committee adjourned for lunch at 1.14 P.M.

The Committee re-assembled at 2.00 P.M.

4.0 In the post lunch session, the Committee took up the matter pertaining to Delhi Police for detailed discussion. Representatives of MHA then made a small presentation which primarily covered various aspects viz. achievements of Delhi Police during 2016-17, new initiatives proposed for 2017-18 and budgetary allocations for major Schemes for FY 2017-18.

4.1 During the course of presentation, some Members raised queries pertaining to safety of women and senior citizens, parking mafias and poor traffic management system, data inconsistency w.r.t communal incidents and cyber crimes, position of vacancies in Delhi Police, regional diversity in recruitment of 99

Delhi Police, underutilization of Nirbhaya Fund, poor number of users of Himmat App and data regarding extortion and abduction cases. The representatives of Delhi Police replied to various queries and assured to send its comments/replies which was not available then in writing to the Committee.

At this point Delhi Police withdrew from the meeting

5. The Chairman then requested the representatives of MHA to give a presentation on Union Territories. Thereafter, the Members raised several queries pertaining to various UTs. The major queries that were raised pertained to the establishment of educational institutions in various UTs, non-implementation of the 4th Finance Commission on UTs, low funding to the Panchayati Raj Institutions in A&N, tourism development in A&N and Lakshadweep, initiatives for promoting renewable energy. The issue of approval for desalination plants in Lakshadweep, reduced supply of ration to the people of Lakshadweep etc. were also raised.

6. The Home Secretary and other officials of the Ministry responded to the queries/issues raised. The Chairman then asked the Home Secretary to send detailed note/replies to the queries which were not replied in the meeting.

7. A Verbatim record of the proceeding of the meeting was kept.

8. The Committee then adjourned at 4.40 P.M. 100

X

TENTH MEETING

The Committee met at 3.30 P.M. on Friday, the 10th March, 2017 in Committee Room "A", Parliament House Annexe, New Delhi.

MEMBERS PRESENT

1. Shri P. Chidambaram — Chairman

RAJYA SABHA

2. Shri Majeed Memon

3. Shri Neeraj Shekhar

4. Shri Sitaram Yechury

LOK SABHA

5. Shri Ramen Deka

6. Shri Mallikarjun Kharge

7. Shrimati Kirron Kher

8. Shri Baijayant "Jay" Panda

9. Shri Lalubhai Babubhai Patel

10. Shri Bheemrao B. Patil

11. Dr. Satya Pal Singh

SECRETARIAT

Shri P.P.K. Ramacharyulu, Additional Secretary

Shri Vimal Kumar, Director

Shri Bhupendra Bhaskar, Deputy Director

Shri Pritam Kumar, Assistant Director

2.0 At the outset, the Chairman welcomed the members of the Committee and apprised them about the agenda of the meeting i.e. consideration and adoption of the draft 201st Report on Demands for Grants (2017-18) of the Ministry of Home Affairs.

2.1 The Chairman then recapitulated that the Committee, in its sitting held on 27th and 28th February, 2017, had heard the representatives of Ministry of Home Affairs on Demands for Grants (2017-18).

100 101

2.2 When the Committee took up consideration of the draft 201st Report, the Chairman stated that after circulation of the draft Report to all the Members of the Committee an additional paragraph on "Traffic Congestion in Delhi" had been prepared and placed before the Members for their approval before incorporation in the said draft report. Thereafter, the Chairman, requested the Members to give their suggestions, if any, for incorporation in the said draft Report.

2.3 On the reduced allocation, under the Modernisation of Police Forces Scheme, the Committee was of the unanimous view that Central Government should provide higher allocations to the States under the Scheme.

2.4 On the issues of Traffic Congestion in Delhi and Long Term Visa (LTV) to Minority Communities from Pakistan, Bangladesh and Afghanistan, some of the Members sought certain modifications and the Committee agreed to their suggestions. After a brief discussion, the Committee adopted the draft 201st report with some modifications.

3. The Committee, thereafter, authorized its Chairman to carry out any typographical/factual errors, if necessary. The Committee then decided to present/lay the report on 15th March, 2017 and authorised its Chairman to nominate three Members from Rajya Sabha and two Members from Lok Sabha for presentation/laying of the report in the respective House.

4. Verbatim record of the proceedings of the meeting was kept.

5. The Committee then adjourned at 4.30 P.M.

ANNEXURES 104

ANNEXURE-I

Scheme-Wise Projections and Shortfall Under Demand No. 46 (MHA)

Head Description B E R E Actual B E B E Shortfall 2016-17 2016-17 Upto Dec, 2017-18 2017-18 2016 (Projected) (Granted)

1 2 3 456 78

Total : Allocation of Grant No.46 4630.90 4846.00 3524.83 5582.00 5100.00 -482.00

I Establishment Expenditure of Centre a MHA Secretariat 403.20 360.88 302.34 499.92 435.14 -64.78 b Official Language 65.11 58.88 49.53 80.88 65.48 -15.40 c National Disaster Response 606.91 647.24 613.55 882.03 650.27 -231.76 Force (NDRF)

II Central Sector Schemes

1. Relief and Rehabilitation 910.28 1124.26 424.95 1035.89 1205.90 170.01 for Migrants and repatriates

2. Freedom Fighter (Pension 760.16 760.16 671.37 950.15 750.16 -199.99 and Other Benefits)

3. Helicopter Services in 86.00 86.00 85.51 86.00 86.00 0.00 North Eastern Region

4. Disaster Management 0.00 0.00 0.00 0.00 0.00 0.00 Schemes

4.1 Capital Outlay for DM 212.11 143.51 101.20 255.15 208.02 -47.13

4.2 NCRMP- Central 11.92 4.33 3.64 5.55 4.25 -1.30 Component

4.3 Other Disaster 64.15 52.74 34.26 113.69 81.30 -32.39 Management Schemes

5. Special Industry 70.00 90.00 67.55 70.00 70.00 0.00 Initiative for J&K

6. Civic Action Programme 60.30 102.30 49.09 80.50 70.00 -10.50 & Media Plan

104 105

1 2 3 456 78

III Other Central Expenditure

1. National Human Right 44.06 44.06 29.89 49.01 48.92 -0.09 Commission- Autonomous Body

2. Census, Survey and 586.21 499.43 609.85 634.57 24.72 Statistics-Schemes and Administrative Exp

3. Other Exp- Miscellaneous 31.71 21.14 10.19 22.66 22.27 -0.39 Exp

IV Other Transfer to States

1. National Cyclone Risk 630.00 630.00 526.20 750.00 690.00 -60.00 Mitigation Project with World Bank Assistance- Funds for Transfer to States

2. Other Disaster Management 23.75 14.12 8.26 35.72 25.72 -10.00 Project- Funds for transfer to States

3. Home Guard- Grand in 37.00 35.40 35.00 26.00 26.00 0.00 aid to States

4. Civil Defence- Grant in 10.00 10.00 10.00 10.00 10.00 0.00 aid to States

5.Payment to State 18.03 13.50 2.87 19.00 16.00 -3.00 Government for Cental Acts- Grants in aid to States

TOTAL: Grant No.46 - MHA 4630.90 4846.00 3524.83 5582.00 5100.00 -482.00 106

Scheme-Wise Projections and Shortfall Under Demand No. 48 (Police)

Grant No. 48-Police

B E R E Expenditure B E B E Shortfall 2016-17 2016-17 as on 15.2.17 2017-18 2017-18 (Prov) (Projected) (Granted)

1 2 3 4 5 6 7 8 9

Grant Total 70184.58 73328.00 55642.12 102249.76 78000.00 -24249.76

1 Central Armed Police Forces

1.01 CRPF 16228.18 16998.07 13903.42 19996.65 17868.53 -2128.12

1.02 NSG 688.47 721.27 469.20 1132.70 816.10 -316.60

1.03 BSF 14652.90 14839.50 12282.59 17094.32 15569.11 -1525.21

1.04 ITBP 4231.04 4589.58 3803.66 5508.15 4824.31 -683.84

1.05 CISF 6067.13 6463.25 5155.64 7647.58 6686.25 -961.33

1.06 AR 4363.88 4641.96 3631.43 5477.81 4801.84 -675.97

1.07 SSB 3854.67 4096.06 3388.72 4866.91 4320.67 -546.24

1.08 DAO 90.18 94.16 75.41 122.58 98.30 -24.28

TOTAL CAPFs 50176.45 52443.85 42710.07 61846.70 54985.11 -6861.59

2 IB 1410.45 1525.61 1097.53 1940.57 1577.07 -363.50

3 Natgrid 45.00 18.71 11.06 94.97 45.57 -49.40

4 SPG 359.55 355.33 222.54 442.41 389.25 -53.16

5 Delhi Police 5657.84 5620.04 4501.63 9757.45 5910.28 -3847.17

6 Central Police 658.29 628.44 457.48 843.27 706.38 -136.89 Organisations

7 Education, Trg 277.91 213.16 135.80 390.18 287.13 -103.05 and Research

8 Criminology and 61.33 49.61 30.92 97.52 67.56 -29.96 Forensic Science

TOTAL Estt. 58646.82 60854.75 49167.03 75413.07 63968.35 -11444.72 Expenditure

9 IVFRT 60.00 60.00 38.42 102.00 66.00 -36.00

10 Welfare Grant 255.80 204.48 133.62 402.95 343.74 -59.21 Aircraft Riverboat and Miscl.

106 107

1 2 3 4 5 6 7 8 9

11 Border Infrastructure and Management

11.01 Maintenance and 209.40 205.78 118.82 308.75 244.32 -64.43 Border Check Post

11.02 Capital Outlay 2490.00 1722.73 1655.91 4983.90 2355.68 -2628.22

12 Police Infrastructure

12.01 Building Projects 3012.98 2991.75 2026.16 7118.04 4008.06 -3109.98 of CAPFs and Central Police Organisation

12.02 Delhi Police 252.50 191.25 104.80 1335.76 439.00 -896.76

13 Research 2119.88 3652.56 507.04 5575.19 2983.00 -2592.19

14 Assistant for 10.30 0.00 0.00 135.00 11.33 -123.67 Nepal Police Academy

15 NCB 140.00 5.00 4.00 5.00 5.00 0.00

16 Women Safety Schemes

16.01 Nirbhaya Fund 150.00 50.00 26.20 349.15 50.00 -299.15 Transfer

16.02 NERS 150.00 250.00 0.00 236.35 313.30 76.95

16.03 Met from -150.00 -250.00 0.00 -236.35 -313.30 -76.95 Nirbhaya Fund

TOTAL CSS/Project 8700.86 9083.55 4614.97 20315.74 10506.13 -9809.61

Autonomous Bodies

17 LPAI 88.00 88.00 87.82 707.95 300.00 -407.95

18 India Reserve 73.90 76.70 18.90 75.00 103.52 28.52 Battalions and Reimbursement to state for deployment of Battalions 108 -II 67.59 29.99 ` ` in crores

NNEXURE ` A 394.22 Cr ` RE and w.r.t. 356.62 cr at Revised ` austerity measures followed by the 37.6 cr at Revised Estimation Stage due various reasons such as less number of domestic as well foreign tours entertained less number of than anticipated number, vaild medical claims were received, savings were also recorded in various heads such Advertising & Publicity, as Other Charges, professional services, Other Minor Works, Administrative Expenses etc. for various Estimation Stage. BE was reduced by ` was reduced to Budget Estimation of Non Plan Plan Non Plan Plan Under Utilisation 2015-16 (46 MHA) Non Plan Plan 0.00 394.22 0.00 356.62 0.00 326.63 Description BE 2015-16 RE 2015-16 Actual 2015-16 REASONS for under utilisation Disaster Management AuthorityManagement Disaster BE. The funds remained un due to w.r.t. of Civil Defence, National Fire to Service College, National CivilNational College, Service The funds to the tune of Ministry. Defence College, Nationalunutilsied remained cr Organisation, zonal Council Secretariat, Director General Departmental Accounting Establishment Expenditure of Centre Grant No. 46 Ministry of Home Affairs Grant No. 46 Ministry of Home 1 2I a MHA Secretariat including 3 4 5 6 7 8 9

108 109 ` 4 cr ` BE remained 530.34 cr at ` w.r.t w.r.t 7.55 cr ` 15.87 cr to ` 1.7 cr at RE Stage. The expenditure RE and ` 546.21 cr. there was a total saving of 546.21 cr. the allocation was However, 32.66 cr. unutilised owing reasons such as purchase of less number computers and its peripherals in different offices of OL, hiring holding of less number casual worker, less number of conference, non approval on hiring of vehicles for official purposes etc. Out of the total budget allocation ` ` reduced by reasons such as receipt of less number bills from claimants, hiring of less number of casual workers, professionals, councillors etc. This head of expenditure contains provisions for various offices of Dep't Official Language. The plan provision was enhanced by was above BE. Non Plan Provisioning, was reduced at RE Stage by however, 3.55 cr in view of the projections made by the Division and ongoing expenditure trend. The funds to the tune of w.r.t. RE stage. The saving was recorded mainly 0.00 546.21 0.00 530.34 0.00 513.55 5.00 51.42 6.70 47.87 5.73 43.87 Authority c National Disaster Management b Official Language 110 582.18 cr ` 721.65 cr. was reduced to 721.65 cr. due to less requirement of fund for J&K (SRE) scheme. The funds remained unutilised in this scheme owing to various reasons such as non finalization of land by State Govt. for transit accommodation in J&K, slow pace of expenditure due to ongoing disruptive exercises in J&K. the amount could not be released Further, / reimbursed to the State Govt. for want of Utilisation Certificate under various relief and rehabilitation heads for migrants repatriates. due to non-filling of the vacancies, receipt of lesser no. medical claims, delay in issued to LOA submission of bills. Further, for various awareness campaigns DAVP could not be utilised due to delay in construction of UPS room, GIS room. The orders placed through DGS&D for items required for GIS project in Feb, 2016 could not be executed in time. Printing of Amps and Upgraded Earthquake Hazard All such Atlases by BMTPC was delayed. occurance effected into savings. ` 556.25 Under this Scheme, Budget Estimation of 0.00 721.65 0.00 582.18 0.00 Central Sector Schemes 1. Relief and Rehabilitation for Migrants and repatriates 1 2 3 4 5 6 7 8 9 II 111 under utilisation. Additional funds under utilisation. 0.64 Cr. ` sub schemes of Disaster Management. Under this scheme, funds could not be utilized under both Plan as well Non Plan sections due to various reasons such as non approval of projects Office building of National Institute Disaster Management submitted for sanctioning to the local authorities (MCD) on16.12.2015. NBCC informed that it may take 4 to 6 months get the approval from local authorities. Necessary approval could not be conveyed Therefore, the during the financial year. funds could not be utilized and hence surrendered. Further as regards, Office Building and Residential of National Disaster Response Force (NDRF), approval of EFC was obtained for creation were allocated at RE Stage which effectively utilized leaving a minor saving of 76.45 No under utilization. 0.00 76.45 0.00 76.45 0.00 3. Helicopter Services in North Easter Region 4. DisasterManagement Schemes DMfor Outlay Capital 4.1 264.50 46.01 10.83 31.02 10.76 20.43 This scheme contain provisions for various and Other Benefits) 2. Freedom Fighter (Pension 0.00 750.16 0.00 790.11 0.00 789.47 No 112 infrastructure in 10Bns. And 10 Coy/Teams infrastructure in 10Bns. locations of NDRF in March 2015, for an budget Accordingly, amount of -882.24 cr. provision was made in BE 2015-16 for the approved developmental activities. NDRF's proposal for seeking administrative approval and expenditure sanction was received in the Ministry in July 2015. The buildings plans prepared by the executive agencies included structures beyond the extent of original approvals and thereby increased estimated cost of the project. The estimates were also not as per prescribed format and were without mention of specifications adopted, and design. It took time to incorporate all after these features in the plan. Subsequently, obtainingconcurrence of IFD for 6 locations and approval of for an amount of 217 cr. the sanction for the competent authority, these works could be issued in February the funds 2016. Due to this procedural delay, allocated for the works could not be fully as regards National Institute utilized. Further, Andhra Pradesh, the of Disaster Management Scheme for settingup of NDMA(Southern Andhra Pradesh was sanctioned Campus) at 5th Feb, at a cost of 70.87 cr.on Works 2016. Selection of the Public 1 2 3 4 5 6 7 8 9 113 37.55 was ` 35.95 as per the requirement ` substantial underutilization. underutilization Organization (PWO), as NBCC, to undertake Organization construction work of NIDM Andhra Pradesh was (SouthernCampus) at As the scheme decided on 4th March, 2016. could only materialize by the end of financial year 2015-16, the funds could not be utilized. Funds remained unutilized under both plan as well non plan sections. Under Plan Section, funds could not be utilized because of non approval projects Office building plans were submitted for sanctioning to the local authorities (MCD) on 16.12.2015. Budget Estimation of of the NHRC and organization could utilize the entire amount allocated at RE stage. BE was reduced at RE stage in view of budgetary assessment made at steering committee's meeting. 40.62 No 22.93 21.98 11.28 21.30 0.00 164.23 0.00 159.01 0.00 7.00 41.30 6.500.02 41.30 37.55 6.37 0.02 35.95 0.00 35.94 45.00 0.00 45.00 0.00 45.00 0.00 No 4.2 NCRMP- Central 416.00 Component 4.3 Other Disaster Management 10.50 21.98 Schemes 5. Special Industry Initiative for J&K Action Programme & 6. Civic Media Plan Other Central Expenditure 1. National Human Right Commission Autonomous reduced to Body III 114 261.08 Cr. ` 282.50 was reduced by ` underutilization. 21.42 Cr atRE Stage to 21.42 Cr atRE Stage ` Underutilization was recorded due to various reasons such as hiring of less number professionals, carrying out less number of domestic as well foreign tours, purchase of less number stationery items than anticipated, receipt of less number medical claims than anticipated, hiring of less number of vehicles for official works. non filling of vacant posts in various Further, offices administered by RGI also resulted into underutilization. The funds remained undertutilized under the head Regional Institute of Correctional Administration due to shifting of the training to Chennai Vellore from APCA Institution non- which is under examination. Further, recipt of Utilization Certificates from the State Government in time contributed to underutilization. Budet Estimate of 0.00 30.44 0.00 18.92 0.00 20.11 0.00 0.00 469.77 0.00 469.77 0.00 No 3. Other Exp-Miscellaneous Exp Other Transfer to States Transfer Other 1. National Cyclone Risk Mitigation Project with World Assistance- Funds for Bank Trasnfer to States 2. Census, Survey andSurvey Census, 2. Statistics- Schemes andAdministrative Exp 283.98 282.50 359.28 261.08 340.95 253.44 Under Non Plan Section, additional funds were required and under Non Plan Section, 1 2 3 4 5 6 7 8 9 IV 115 47.53 ` was reduced by substantial underutilization. underutilization. The fund allocated under the above head of account are utilized to reimburse the expenditure on deployment of additional companies / battalions from other states for provinding assistance in smooth Sabha conduct of the Lok Sabha/Vidhan elections, as and when sanctioned by the Govt. of India. Claims received from the States / Uts are processed by the DGCD inconsultation with MHA and amount of claim is reimbursed. Funds were reduced at RE Stage during the year 2015-16 due to non receipt of pending claims along with audit certificate from the States despite repeated reminders. the entire Government. Further, from State funds allocated at Revised estimation was utilized. 9.69 No 14.99 Budget Estimation .00 10.00 0.00 3102.59 1090.26 2865.39 1058.87 2758.53 0.00 0.00 5.00 0.00 10.00 0.00 No 0.00 11.000.00 0 61.03 0.00 13.50 0.00 1032 No.46-MHA for Cental Acts- Grants in aid toStates at RE Stage due to non receipt of claims Cr. 2. Other Disaster Management Project-Funds for transfer to States 3. Home Guard- Grand in aidto States 0.00 41.00 0.00 36.55 0.00 36.98 4. Civil Defence- Grant in aid to States 9. Payment to State Government Grant Total: 116 Reasons for under utilisation procurement proposal for motor vehicles and procurement proposal for motor vehicles and procurement proposal for motor vehicles and Municipal taxes. procurement proposal for motor vehicles and vehicles and Mach.& Eqpt. Could not be finalised. been revised. nditure 1.38 110.51 88.80 62.7527.63 62.46 18.63 16.87 37.25 25.75 23.21 121.38 11 285.00 188.19 186.50 and requirement of less funds towards training 439.79 294.48 292.70 598.76636.01 549.52 575.27 532.68 Some of the propcurment proposals for motor 555.89 Besides in some cases its delivery schedule have 3736.475169.02 3744.95 5307.505196.65 3772.683725.28 Mach.& Eqpt. could not be finalised. 5326.13 5334.00 Saving under capital section due to some of the 3739.203846.66 5350.86 Mach.& Eqpt. could not be finalised. 3850.58 3740.37 Saving under capital section due to some of the 3850.88 Mach.& Eqpt. could not be finalised. 3647.67 3682.20 3710.22 Saving under capital section due to some of the 2015-16 2015-16 2015-16 12232.82 12768.2212517.82 12761.15 12956.41 Saving was due to non-finalisation of proposals 12947.65 programme, petrol, oil and lubricant, Rental 13649.59 14019.9914089.38 14031.52 14314.47 Saving under capital section due to some of the 14324.22 Mach.& Eqpt. could not be finalised. Under Utilisation 2015-16 (48 Police) Total 2055 4055 Total 4055 Total 4055 4055 Total 2055 4055 Total 4055 Total Heads BE RE Expe Police 2055 Security Force Guard 2055 Force 2055 Police Force Object Head Rifles 2055 4. Indo-Tibetan Border 12 7 1. 3456 Central Reserve 5. Central Industrial 6. Assam 3. Border Security 2. National Security

116 117 Saving was due to non engagement of project procurement proposal for motor vehicles and non-finalisation of procurement proposals and training programme and minor lubricant, tours, works. proposals and requirement of less funds towards conference/seminars, workshops and minor works. procurement proposal for motor vehicles and Saving was due to non-filling up of vacant and requirement of less funds towards training programmes. proposals and conversion of the organisation into grantee body. 60 consultants. 3.00 2.50 1.64 0.05 0.00 0.00 33.4419.5052.94 16.21 0.60 16.81 14.75 0. 15.35 20.00 19.00 15.60 53.53 50.03 48.30 requirement of less funds towards petrol, oil and 50.53 47.53 46.67 Saving was due to non-filling up of vacant posts, 13.40 5.40 2.21 10.65 4.10 3.73 Saving was due to deferrement of procurement 87.0083.74 45.50 79.20 41.80 77.66 10.70 4.10 3.73 269.35 278.79 258.97 255.95 273.39 256.76 Saving was due to non-finalisation of procurement 1250.40 1223.951270.40 1242.95 1325.84 Saving under capital section due to some of the 1341.44 Mach.& Eqpt. could not be finalised. 3366.68 3342.353453.68 3387.85 3375.73 Saving under capital section due to some of the 3417.53 Mach.& Eqpt.could not be finalised. 4055 4055 Total Total Total 4055 4055 2055 4055 4055 Total Total Grid 2055 Bureau 2055 Bal 2055 Accounting 2055 Immigration Authority 2055 ` Total Organisation of CPMFsof Organisation posts, non finalization of procurement proposals 13. Narcotics Control 12. Bureau of 9. National Intelligence 10. Land Port 11. Intelligence Bureau 2055 7. Sashastra Seema 8. Departmental 118 Saving was due to non-filling up of vacant posts, non finalisation of procurement proposals and requirement of less funds towards tours, casual labours and training programmes. Saving under capital section due to some of the procurement proposal for motor vehicles and Mach.& Eqpt. could not be finalised. towards wages, rentals, training programmes, Saving was due to non finalisation of procurement consultants and non finalization of modified assured career progression scheme arrears and requirement of less funds towards advertisement, publicity and tour programmes. requirement of less funds towards training programme, petrol, oil and lubricant minor works. procurement proposal for motor vehicles and some cases its delivery schedules have been revised. 3.05 1.85 finalisation of procurement proposals and non 18.3265.53 12.20 51.11 2.04 38.79 61.9010.36 59.71 4.31 59.01 1.64 Saving was due to requirement of less funds 47.21 38.91 36.76 23.58 19.19 15.01 proposals and requirement of less funds towards 97.86 92.5941.38 88.77 19.95 19.38 94.81 89.54 86.92 Saving was due to non-filling up of vacant posts, 253.92277.50 205.57 224.76 172.43 187.44 tours, training programme and engagement of 288.89330.27 260.85 280.80 257.13 Saving under capital section due to some of the 276.51 Mach.& Eqpt. could not be finalised. Besides in Total 2055 4055 4055 4055 2055 Total 4055 Total 4055Total 3.05 and 2055 Agency 2055 and Research ireless Group 2055 Police W Vigilance Scheme 12 7 3456 18. Inter-State 17 Criminal Investigation 15. Special Protection 16. Education, Training 14. National Investigation 119 was due to non-filing up of vacant posts requirement of less funds towards tours, and requirement of less funds towards tours, petrol, oil and lubricant procurement proposal for motor vehicles and Mach.& Eqpt. Could not be finalised. 0.01 0.00 and 0.50 0.50 7.00 7.00 3.00 3.30 21.98 21.78 20.95 reward and medical claims. 21.92 21.77 20.95 Saving was due to non-filing up of vacant posts 72.26 64.02 60.65 127.71 102.00 101.90 reward and medical claims. 4881.77 4962.63 4942.36 5009.48 5064.63 5044.26 Total 2055 2055 4055 Total 4055 0.06 4055 0.50 2055 7.00 4055 3.00 Total Records Bureau latest technology Traffic and Delhi Police in Delhi Police Communication Network in NCR Mega Cities and Model Traffic System Upgradation of Training in Delhi Police 20.20.01 Delhi Police 0.00 0.00 0.00 Saving 20.03 20.04 Induction of 20.02 Developing Total-Police19. National Crime 46060.75 46540.82 46617.33 120 to some proposal could not be due to non-finalization of proposals Saving was due to non receipt of materials/ hardware from suppliers and Some of the procurement proposals for motor vehicles and Mach. & Eqpt. Could not be finalised. and non-receipt of reimbursement claims. Saving was due to non-finalization of proposals. finalised. 1.60 1.15 1.40 0.06 8.00 5.87 Saving was due 2.00 1.91 1820.65 1820.65 -1.40 -1.40 0.00 -2.00 -2.00 0.00 44.8646.06 45.7465.00 47.34 44.75 65.00 45.90 64.64 Saving was 70.00 70.00 69.97 274.86 299.23 286.84 Saving was due to non filling-up of vacant posts. 5027.98 5083.13 5062.90 1443.51 2119.88 2107.49 Total 4055Total 1.20 2055 4055Total 1168.65 4044 2055 2055 4055 1.40 4055 8.00 2055 2.00 from Nirbhaya from Nirbhaya of Police Force Expenses 2055 of Traffic Signals Fund Fund Scheme for Safety of Women of Women Scheme for Safety Grants 2055 Assistance to .States etc. in Delhi Police 20.06.03 20.06.04 Met 20.06.02 Met 20.06.01 Total-Delhi Police Total-Delhi 21. Other Police 22. Welfare 23. Research 24. 24.01 Modernisation 20.06Women Scheme for Safety of 20.05 Installation 12 7 3456 121 due to non-finalization of proposals. claims from the State Governments 1797.96 1.50 1.50 0.00 0.00 0.00 0.00 0.00 0.00 1754.11 50.5040.00 40.50 20.00 40.50 Saving was due to receipt of less reimbursement 40.00 100.00 51.35150.00 150.00 35.24 Saving was 150.00 840.00 828.65 868.65 525.00595.00 592.11 662.11 592.11 662.08 1777.00 3601 1.50 3601 3601 3601 2055 3601 0.00 2055 0.00 3601 0.00 3601 3601 Total to Naxal Criminal Tracking Related Expenditure Infrastructure in Left cover gap in recsources Fortified Police Stations Gorkhaland Territorial Administration Management insurgency & anti terrorist schools Network and Systems (CCTNS) Wing Extremist affected Wing States Total-Assistance to States Total-Assistance 24.09 24.10 Narcotics Control Bureau to 24.07 Assistance 24.08 Construction/strengthning of 24.06 India Reserve Bns. 24.05 Assistance to counter 24.04 Crime and 24.03 Spl. 24.02 Security 122 to slow progress of construction work in some sector by executing agencies. work by Central Public Works Department. Works work by Central Public 1.00 1.00 Saving was due 5.40 0.00 0.000.600.60 0.00 0.00 0.00 1418.81 975.95 0.00 0.00 0.00 50.8256.22 35.82 41.22 35.82 35.82 95.00 92.00 88.51 Saving was due to slow progress of construction 60.00 60.00 61.71 671.00 671.00 0.00 430.19 654.81 886.43 1199.30 4552 20554055 5.40 4055 20553602Total 0.00 0.60 0.60 2055 4055 erritories Project on of Integrated Check provision for projects/ Police Organisation Police schemes for the benefit of North Eastern Region & Sikkim Residential Building SPG 4055 3.11 Posts Immigration, Visa and Foreigners Immigration, Visa (IVFRT) Registration & Tracking Accommodation for Police 28.04 Lumpsum Total-Construction of Residential Total-Construction 28.03 26.02 Setting up 26. Immigration Services Services Total-Immigration 27. Mission Mode 26.01 Border Checkposts 28.02 Delhi 12 7 3456 25.T Assistance to Union Housing 28. Construction of Residential 28.01 Central 123 to slow progress of construction executing agencies. to harsh hilly terrain and inclement weather conditions and pending local clearances. work in some sector by executing agencies. work by Central Public Works Department. Works work by Central Public work in some sector by executing agencies. 0.50 0.50 Saving was due 20.00 7.00 0.00 Saving was due to slow progress of work by 300.00 349.00 397.01 320.00 320.00 270.17 Saving was due to slow pace of work owing 292.00392.00 292.00 392.00 371.13 527.37 100.00 100.00 156.24 246.50 314.50 313.10 Saving was due to slow progress of construction 2426.92 2608.90 2762.17 2176.00 2293.90 2448.57 Saving was due to slow progress of construction 4055 4055 4055 4055 4055 4055 4.42 4055 4055 Police Organisation Building SPG Police Construction of Roads Erection of Barbed Wire Erection of Barbed Border Management Border Construction of Buildings for Police 30.04Works Indo-Myanmar Border 30.03 Indo-China Border Works Total-Indo-Bangladesh Border Works Border Total-Indo-Bangladesh 30.02Works Indo-Pak Border Fencing 30.01.02 for Police 30. 30.01 Indo-Bangladesh Border Works 30.01.01 Total-Construction of Buildings Total-Construction 29.03 Office Accommodation for Police Public Works 29. 29.01 Central 29.02 Delhi 124 Helicopters. Saving was due to non finalisation of procurement proposal of boats for coastal security. harsh hilly terrain and inclement weather conditions and pending local clearances. 845.70 0.00 0.00 0.00 0.00 5.00 5.00 0.00 0.00 0.00 18.90 18.90 18.90 10.54 65.90 60.91 Saving was due to pending delivery of spares 50.00 1.00 0.00 319.66 848.94 335.20 919.84 911.61 300.00 308.25 306.10 710.00168.00 160.00 142.50 48.89 162.64 Saving was due to slow pace of work owing 300.00 200.00 161.99 1382.00 1269.00 1356.53 2055 0.00 3601 2055 0.00 2055 4055 7601Total 5.00 4055 4055 4055 Works 2055 States for Posts 4055 Component Security Total of distress signal from victims with mobile vans and control rooms deployment of Bns. Administrative Expenses to be incurred under National Scheme for Modernisation of Police and Other Forces (CSS) 37 Scheme on backend integration 36.02 EAP Component 35. Reimbursement to 36. 36.01 Programme 34. Misc. Items 32. Maintenance of Border 33. Border Out 31. Coastal 30.06Works Indo-Bhutan Border Management Total-Border 12 7 30.05 3456 Border Works Indo-Nepal 125 Saving was due to non-finalization of proposals. 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.00 -1.97 35.0035.00 28.00 28.00 15.39 15.39 67.00 67.0079.60 1.26 79.60 0.00 -67.00 -67.00-79.60 -3.17 -79.60 -0.06 990.00990.00 990.00 990.00 990.00 990.00 1025.00 1018.00 1005.39 3601 3601 0.00 3601 0.00 3601 2055 4055 2552 0.00 2055 4055 Saftey of Women from Nirbhaya Fund from Nirbhaya Fund Scheme for Seftey of Scheme for Saftey of Total-NSMP Moderisation of Police and Other Forces Total Programme Net Total Inter Account Transfer Deducted Recovery Deduct recovery Capital Grand Total 62604.52 64102.13 63690.45 Total - State & UT Plan & UT - State Total 39.03 UT Component 39.02 EAP Component 39. National Scheme for 39.01 Programe Component 37.01 Scheme for 37.01.01 37.01.03 Plan & UT State 38. Border Area Development Women 37.01.02 Met Women 37.01.04 Met 126

Under Utilisation 2016-17 (48 Police)

Grant No. 48-Police

B E R E Expdr. B E Reasons for 2016-17 2016-17 On 2017-18 under utilisation 31.12.16 (P rov)

1 2 3 4 5 6 7 8

Grant Total 70184.58 73328.00 55642.12 78000.00

1 Central Armed Police Forces

1.01 CRPF 16228.18 16998.07 13903.42 17868.53

1.02 NSG 688.47 721.27 469.20 816.10

1.03 BSF 14652.90 14839.50 12282.59 15569.11

1.04 ITBP 4231.04 4589.58 3803.66 4824.31

1.05 CISF 6067.13 6463.25 5155.64 6686.25

1.06 AR 4363.88 4641.96 3631.43 4801.84

1.07 SSB 3854.67 4096.06 3388.72 4320.67

1.08 DAO 90.18 94.16 75.41 98.30

Total CAPFs 50176.45 52443.85 42710.07 54985.11

2 IB 1410.45 1525.61 1097.53 1577.07

3 Natgrid 45.00 18.71 11.06 45.57

4 SPG 359.55 355.33 222.54 389.25

5 Delhi Police 5657.84 5620.04 4501.63 5910.28

6 Central Police 658.29 628.44 457.48 706.38 Organisations

7 Education, Trg and 277.91 213.16 135.80 287.13 Research

8 Criminology and 61.33 49.61 30.92 67.56 Forensic Science

Total Estt. 58646.82 60854.75 49167.03 63968.35 Expenditure

9 IVFRT 60.00 60.00 38.42 66.00

10 Welfare Grant Aircraft 255.80 204.48 133.62 343.74 Due to reduced River boat and Miscl. maintenance cost of aircraft/river boat

126 127

1 2 3 4 5 6 7 8

11 Border Infrastructure and Management

11.01 Maintenance and 209.40 205.78 118.82 244.32 Border Check Post

11.02 Capital Outlay 2490.00 1722.73 1655.91 2355.68 Procurement proposals for 225 boars for Coastal Security is yet to be approved.

12 Police Infrastructure

12.01 Building Projects of 3012.98 2991.75 2026.16 4008.06 CAPFs and Central Police Organisation

12.02 Delhi Police 252.50 191.25 104.80 439.00 Due to slow progress of PPP projects.

13 Research 2119.88 3652.56 507.04 2983.00

14 Assistant for Nepal 10.30 0.00 0.00 11.33 Police Academy

15 NCB 140.00 5.00 4.00 5.00

16 Women Safety 0.00 0.00 0.00 Schemes

16.01 Nirbhaya Fund 150.00 50.00 26.20 50.00 Transfer

16.02 NERS 150.00 250.00 0.00 313.30

16.03 Met from Nirbhaya -150.00 -250.00 0.00 -313.30 Fund

TOTAL CSS/Project 8700.86 9083.55 4614.97 10506.13

Autonomous Bodies

17 LPAI 88.00 88.00 87.82 300.00

18 India Reserve 73.90 76.70 18.90 103.52 Battalions and Reimbursement to state for deployment of Battalions 128

1 2 3 4 5 6 7 8

19 Modernisation of Police Forces

19.01 Modernisation of 845.00 845.00 359.74 800.00 Police Forces and CCTNS

19.02 SRE and Special 840.00 1390.00 667.13 1222.00 Infrastructure Scheme for LWE Areas

TOTAL MOPF 1685.00 2235.00 1026.87 2022.00

20 BADP 990.00 990.00 726.53 1100.00

TOTAL Centrally 2675.00 3225.00 1753.40 3122.00 Sponsored Schemes

GRANT TOTAL 70184.58 73328.00 55642.12 78000.00