Foreword

The rising unemployment despite high growth in non-farm sector in India is causing concern to
every one. The growth in Agriculture which provides livelihood to about 50 per cent of the work
force in India and 66 percent in Rajasthan is tardy. A very sizeable number has to be moved away
from agriculture for the remaining persons to earn well. Due to continuing high growth rate of
population, annual addition to the work force is over 10 million a year. In Rajasthan, about 8
lakhs livelihoods are needed annually for over the next decade to deal with the problem.
Realizing the enormity and urgency of the task of livelihood promotion, the State Government set
up Rajasthan Mission on Livelihoods in 2004.

In order to understand various facets of livelihood issues across segments, sectors and spatial
regions, RMoL has undertaken 25 rapid assessment studies, held 25 consultations and initiated 4
pilot projects involving stake holders, academics, researchers, Government functionaries and civil
society organizations. The booklets being published now including the present one contain our
learning about complexities of livelihoods in a summarized manner, derived from the field
studies and consultations. These illuminate various facets of livelihoods in the State and would be
helpful in proper understanding of the issue and in developing proper perspective in this regard. I
do hope that all those who are concerned with the problems of livelihoods, particularly the
livelihoods of the poor, unemployed and the under privileged would find these booklets very
useful. Both the content and the views expressed therein represent summation of views expressed
by many persons and we would like to thanks all those who made it possible for us to bring out
these booklets including the State Government, UNDP and BASIX. My colleagues at the RMoL
worked tirelessly for holding consultations and undertaking field studies. Appreciation is due to
them as well.

M.L. Mehta
Deputy Chairman
RMoL

RMoL-BASIX Page 1 of 25
 ISSUES & IMPACT OF GOVERNMENT
PROGRAMS

A Study on
Impact of Government Sponsored Schemes
in Baran and Churu Districts
of Rajasthan

And

Proceedings of the workshop on

Development and Implementation of Livelihood Generating
Programmes

By
BASIX

RMoL-BASIX Page 2 of 25
Abstract

Rajasthan, with a total geographical area of 3.42 lakh sq. km accounts about 10 percent of the
total area of the country. According to the Census 2001 the population of Rajasthan is over 565
lakh (about 5.50 percent of the national population) showing a decadal growth rate of over 28
percent (1991 to 2001) with the sex ratio of 921 female per 1000 male including 132.14 lakh of
urban (23.38%) and 432.93 lakh (76.62%) of rural population. The total workforce is estimated at
1.39 crores (32.26% of the total population) consisting of 97.86 lakh male and 41.72 lakh female
population1. The State would annually need 6 lakh new livelihoods and 2 lakh additional
livelihoods for meeting the back log.
This situation puts pressure on the government and other role players in the development sector to
make all possible efforts to create sufficient livelihood opportunities in a proportionate way of the
increasing population. Focused particularly on the youth and rural population the Government of
Rajasthan, with support of the Central Government at policy and programme implementation
levels has been making efforts to achieve the desires in this concern. Certain government
sponsored schemes like Swarna Jayanti Gram Swarozgar Yojana (SGSY), Sampoorna Grameen
Rozgar Yojana (SGRY) and MP and MLA Local Area Development Schemes are particularly
made and implemented in the state to benefit rural workforce and population to achieve better life
standards. But, these schemes, like other several schemes have different stories of success and
failures in different districts of the state having different handling and treatments from the
bureaucracy to the beneficiary levels. To plan for an improved implementation of these and future
schemes and to bring better results in this concern it is necessary to overview these schemes with
an impact assessment practice on people.

With this objective the present study ‘Impact of Government Sponsored Schemes in Baran and
Churu Districts of Rajasthan’ was conducted focusing on such three schemes namely the Swarna
Jayanti Gram Swarozgar Yojana (SGSY), the Sampoorna Grameen Rozgar Yojana (SGRY) and
the MP and MLA Local Area Development Schemes to assess the impacts of selected
government sponsored schemes in Baran and Churu district of Rajasthan. The outcome of the
study enables to assess the extent to which the specified objectives of the scheme are being met
and to identify the areas of success and failure.

1. Introduction
The governments functioning at the State and Central levels are the largest development agencies
and invest substantial part of their budget to augment social and economic empowerment of the
population. Therefore, effective implementation of the development programmes run and
sponsored by various agencies become very important. However, each developmental activity has
its own impact. It is desirable to know then that which developmental activity affects the socio-
economic conditions of the targeted beneficiaries and to what extent so that necessary
prioritization could be planned to achieve better outcomes. RMoL has conducted an impact
assessment study of the selected development and empowerment initiatives of the State
Government taking Baran and Churu as sample districts, is an effort in this direction.

2. Objective of the Study

The Primary Objective of the present study was an impact assessment of government sponsored
development schemes in Churu district of Rajasthan and suggesting strategies to make the
schemes more effective. Meanwhile the broader objectives of the study include the following:

1
Census 2001

RMoL-BASIX Page 3 of 25
  To study the guidelines and different schemes of government sponsored development
programmes for Baran and Churu districts, study implementation procedure and identify
the existing gaps.

 To examine the nature and modality of coordination at policy, implementation and

execution levels between development functionaries and other concerned stakeholders
and its impact on implementation of the programme.

 To study the monitoring and feedback mechanism adopted at different levels and its
impact on implementation and outcome of the programme.

 To study whether the works implemented under the government development schemes
met the felt needs of the people.

 To find out the key success factors and areas of convergence with other schemes .

With the above mentioned objectives of the study the following government schemes were
studied at the district level in Baran and Churu districts of Rajasthan:

1. Swarna Jayanti Gram Swarozgar Yojana (SGSY)

2. Sampoorna Grameen Rozgar Yojana (SGRY), and
3. MP and MLA Local Area Development Schemes (MP&MLALADS).

3. Methodology
In order to conduct the study various government sponsored schemes were reviewed in two
districts Baran and Churu in June 2007. Both the districts are different with each other in various
way i.e. topography, human resources, natural resources, livelihoods and pace and impacts of the
development.

Out of more than 30 on going government schemes in the district, a sample of four schemes was
taken. The basis of selection was:
 Availability of information,
 Coverage of scheme (area, population),
 Achievement status of the objectives of the schemes,
 Recommendation/guidance from district officials, and
 Suggestion/guidance from the project guide

Similarly, the basis of selection of the research area for impact study was:
 Availability of information (particularly secondary data),
 Schedule of the respondents,
 Area covering maximum number of the schemes,
 Distance from district headquarter, and
 Suggestions/guidance from the government officials/NGOs.

After doing necessary desk review of the schemes and districts selected for the study the required
data for the study was collected from various government offices, PRI, financial services
providers etc like Offices of District Collectors, Zila Parishads, Panchayat Samitis, Gram
Panchayats, Banks and the Non Government Organizations. The primary data was collected from
the sample respondents at village level.

RMoL-BASIX Page 4 of 25
The findings of this study are largely based on the analysis of data collected from a sample of the
following:
(1) District officials coordinating SGSY,
(2) Block level government officials,
(3) Sarpanch/knowledgeable person of sample GP/Villages,
(4) Concerned NGO as a role of facilitator,
(5) Bank officials linked with the scheme,
(6) Swarozgaris from Self Help Groups, and
(7) Individual Swarozgaris.

4. District Profiles
In order to describe the details regarding the review of the mentioned schemes and the impact
assessment done through the study it is necessary to look at the profiles of Churu and Baran
districts in a study concerned way. The brief profiles of both the districts are given below:

4.1. Profile of Churu District

Churu district, like an oasis, situated in the middle of the shifting golden sand dunes, opens the
gate to the great Thar Desert. Geographically, it lies in 28º 18' N latitude and 74º 58' E longitude.
Administratively, Churu is the headquarter of the district. 

Earlier a part of the Bikaner State, Churu district came into existence in 1948 comprising three
tehsils Churu, Rajgarh and Taranagar. The district has diversified climate and culture, occupied
nearly 4.5 % area of the state. It is bound on the north by Ganganagar district, on the east by Sikar
and Jhunjhunu districts of Rajasthan and Hissar district of Haryana, on the south by Nagaur
district and on the west by Bikaner district. Now it comprises of five sub-divisions, six tehsils,
two sub-tehsils, ten Municipalities and nine hundred eight villages. Sujangarh, Ratangarh,
Sardarshahar, Tarangar, Rajgarh, Ratannagar, Chapper, Bidasar and Rajaldesar are the other
major towns in the district. The human resource related details, based on Census 2001, of Churu
district are given in Table 1 while the administrative set-up is described through Table 2 below:

Table 1
Sl. No. Population (as per the Unit Details
Census 2001)
1. Male No. 870821
2. Female No.  825218
3. Total No. 1696039
4. Rural No. 1204863
5. Urban No. 491176
6. SC No. 357883
7. ST No. 9752
8. Density Per Sq. Km 123
9. Urban Per cent 28.96
10. Sex ratio Per thousand  948
11. Growth rate (1991-2001) Per cent 23.51
12. Literacy ratio Per cent 67.67
13. Male literacy Per cent 79.96
14. Female literacy Per cent 54.85

Table 2
Sl. Sub. Dvn. Tehsils Vill. ILS Patwar No. Of Name of PS
No. circles panchayts

RMoL-BASIX Page 5 of 25
 1. Sujangarh Sujangarh 173 8 55 51 Sujangarh
2. Ratangarh Ratangarh 102 4 30 32 Ratangarh
3. Sardarshahar Sardarshahar 185 7 57 48 Sardarshahar
4. Churu Churu 109 4 35 35 Churu
5. Rajgarh 217 8 58 55 Rajgarh
Rajgarh
Taranagar 122 4 30 28 Taranagar

4.2. Profile of Baran District

Baran district is located on the south-east corner of Rajasthan and adjacent to Shivpuri and Guna
district of Madhya Pradesh. It is bounded on North-West by Kota and on South-West by Jhalawar
district of Rajasthan. The maximum length of district from North-South is 103 kms and
maximum width from West-East is 104 kms. The total area of the district is 6955 Sq.km. The
district comes under two parliamentary constituencies namely Kota and Jhalawar. The district is
divided in four assembly constituencies namely Baran, Kishanganj, Chhabra and Kishanganj and
Sahabad. The district has a dry climate except in the monsoon season.
The general information about the district is mentioned in the following Table 3.

Table 3
Parameters Particulars
Sub Division Baran,Chhabra,Shahbad,
Kishanganj,Mangrol,Atru
Tehsils Anta, Atru, Baran,Chhabra,
Chhipabarod, Kishanganj,
Mangrol, Shahbad
Panchayat Samitis Anta,Atru,Baran,Chhabra,
Chhipabarod, Kishanganj, Sahabad
Municipality Anta,Baran,Chhabra,Mangrol
Gram Panchayat 215
Revenue Villages 1233
Population 1021653
Male 535137
Female 486516
Urban Population 172015
Rural Population 849638
SC 181070
ST 216869
Sahariya 72258
Literacy% 60.37
Female literacy 42.18
Male literacy 76.86

5. Profile of Government Schemes

The government schemes included in this study are of different nature in terms of design, target,
objectives etc and have different outcomes in the given scenario. These are explained below :

5.1. Swarna Jayanti Gram Swarozgar Yojana (SGSY) is a package of financial assistance to the
poor both directly and indirectly. Under the SGSY, assistance is given to the poor families living
below the poverty line in rural areas for taking up self employment. The persons taking up Self-
Employment are called swarozgaris. They may take up the activity either individually or in
Groups, called the Self-Help Groups. Under this scheme 4 to 5 activities are selected in each

RMoL-BASIX Page 6 of 25
Block with the help of officials, non-officials and the Bankers. The financial assistance includes
grant from Central and the State Government and loan from banks. Whereas the credit component
is directly used for private investment, the grant component is used to supplement the credit as
capital subsidy and for investment, development, capacity building, revolving fund and other
miscellaneous uses. A close coordination between different agencies responsible for
implementation of SGSY is critical for the success of the programme.

5.2. Sampoorna Grameen Rozgar Yojana (SGRY) is a Centrally Sponsored Scheme (CSS)
being implemented with the total outlay of Rs. 10,000 crores. The objectives of the scheme is to
provide additional wage employment in the rural areas as also food security, alongside the
creation of durable community, social and economic infrastructure in the rural areas. The
programme is being implemented in two Streams: (i) The First Stream of the programme is being
implemented at the district and intermediate level Panchayats. 50% of the funds are earmarked
out of the total funds available under the SGRY and distributed between the Zilla Parishad and
the Intermediate level Panchayats or Panchayat Samitis in the ratio of 40:60. (ii) The Second
Stream of the programme is being implemented at the Village Panchayat level. 50% of the
SGRY funds are earmarked for this stream. The entire funds are released to the Village
Panchayats through the DRDAs/Zilla Parishads. The programme is self-targeting in nature with
special emphasis to provide Wage Employment to women, scheduled castes, scheduled tribes and
parents of children withdrawn from hazardous occupations.

5.3. MP and MLA Local Area Development Schemes are implemented to provide
infrastructural facilities and social development of the parliamentary and assembly constituency
as per the recommendations of concerning MP/MLA.

6. Findings, Issues and Challenges: Churu District

The major findings, issues and challenges observed during the study in both the districts are
described below with reference to the districts and schemes separately. The following Table 4
presents the profile of respondents selected and interacted during the study in Churu district.

Table 4: Profile of the respondents during the study in Churu District

No. Social Category Educational Status Occupation Eco. Cond.

of
SGS S S OB GE Illiterate Prim Second Abo Ag Lab Oth <2 25 >50
Y C T C N ary ary ve ri our ers 5k k- k
Resp 50
onde k
nt
30 8 0 9 13 21 7 1 1 13 0 17 18 11 1

For SGRY assessment study was conducted in eleven Gram Panchayats of two Blocks in Churu
with a sample of fifteen primary respondents and thirty one secondary respondents from the
government/non government implementing and support agencies. Five activities of road &
bridges, two of drinking water and two socio-economic activities were also studied while doing
survey with primary respondents.

Table 5
No. Social Category Educational Status Occupation Eco. Cond.
of
SGR S S OB GE Illiterate Prim Second Abo Ag Lab Oth <2 25 >50
C T C N ary ary ve ri our ers 5k k- k

RMoL-BASIX Page 7 of 25
Y 50
Resp k
onde
nt
30 8 0 9 13 21 7 1 1 13 0 17 18 11 1

Similarly for MLAMP assessment study was conducted in six Gram Panchayats of two blocks in
Churu with a sample of twenty seven primary respondents and eighteen secondary respondents
from the government/non government implementing and support agencies. Six activities of road
& bridges, one of drinking water/sanitation and two education related construction activities were
also studied while doing survey with primary respondents. The details regarding the sample
respondents and MLAMP scheme is given in the following Table 6:
Table 6
No. Social Category Educational Status Occupation Eco. Cond.
of
MP SC S OB GE Illiterate Prim Second Abo Ag Lab Oth <5 50 >1
LA T C N ary ary ve ri our ers 0k k- lac
MP 1la
Resp c
onde
nt
27 12 0 9 6 18 7 0 2 10 13 4 11 12 4

6.1. Swarna Jayanti Gram Swarozgar Yojana (SGSY) in Churu District

6.1.1. Physical impact

During 2005-06 over 105% of the funds available under SGSY were spent for the implementation
of the scheme against spending of 91% and 83% respectively during 2004-05 and 2003-04. Thus
it shows that over the years there is a continuous expansion in expenditure percentage, however
only 2% of the surveyed SHGs in Ratangarh block were linked to Economic activities and 15
more such groups were noticed being linked to pre decided economic activities. 46% of the
respondents had increased their annual income in the range of Rs.1 to Rs.25000 and 63% of the
net assets increased due to increase in number of livestock, particularly goats. The beneficiaries
were mostly engaged in goat rearing as economic activities. The loans that they received from
bank resulted in purchase of goats and hence the assets increased.

The details from Ratangarh Block shows that in two months period 19 new groups were formed
while the majority of older groups could not receive their Revolving Funds by that time. The
lacuna in the process strongly advocates that these groups are made in hurry just to fulfill the set
targets. Only few groups were linked to some economic activities while the follow up measures
are literally out of purview in Churu district. Regarding the recovery rate, majority of banks have
been experiencing very low recoveries in SGSY and other schemes. For a thin majority of 13 per
cent respondents got initial training and most of them were individual beneficiaries who were
engaged in goatery work.

6.1.2. Awareness about the scheme

In terms of general awareness about the scheme majority of the respondents are fully aware of
components like name of the facilitator and also the loan and subsidy component, which shows
their interest in financial benefits they can avail through SGSY. However, inherent components
such as provision of marketing support and insurance linkages are less known to the Swarozgaris.
More than fifty percent of the respondents had no idea of the process and time period to repay

RMoL-BASIX Page 8 of 25
loan amount and three fourth respondents were unaware of the marketing support being
facilitated under the scheme. This further indicates the beneficiary’s interest is in getting
subsidized loans and not thinking too much the real objective of the Scheme.

6.1.3. Relevance of the scheme

A large section of the respondents, about 64 per cent of the sample size, believed that a serious
change is required in the guidelines of the scheme while about 90 per cent of the respondents
stated that they would not prefer NGOs to implement the project. According to them the project
execution should be transferred to the PRIs. The reasons cited for disagreement with NGOs were
that their involvement induces ‘money game’. The execution could be done at low cost and quite
efficiently by Panchayats. Under SGSY the concerned banks ensure quality purchase of assets
through close monitoring and physical verification of the items purchased. The bank officials
along with Insurance Officer visit swarozgaries place and tag the livestock purchased after the
procurement. As a better indication regarding the implementation of the scheme PS/DRDA
officials are found quite supportive in the exercise but failed to explain their role in asset creation
process.

6.1.4. Conclusion
The SGSY programme is running successfully in Churu district and the financial allocation and
expenditure in project are satisfactory though there are differences in between the stated
guidelines. For e.g. the scheme guidelines state that choice of key activities should be a carefully
thought out and should be based on the local resources, the aptitude as well as the skill of the
people and the products should have ready market whereas in practical key activities are pre
decided. Since 1999 the same set of activities are being implemented in the district and do not
fulfill the actual needs.

While forming SHGs the facilitators should recognise the natural bonds and affiliations existing
within the society in reality but most of the SHGs seem to be formed in haste. To resolve such
things adding negativities in the process of implementation a community coordinator or animator
could take up the responsibility of managing 10-15 SHGs in a geographical cluster consisting of
4-5 villages with in a radius of 4-5 kms. Meanwhile, the present situation of the SGSY in Churu
districts states that an NGO volunteer looks almost 10 far off villages and the group hugely
depends upon them.

The objective of grading exercise under SGSY is to identify the weaknesses, if any, and help the
group to overcome the same through training and capacity building inputs, so as to develop into a
good group. But in reality, the grading exercise is done for the namesake only to get the loans
sanctioned as per the provisions. This is done mainly through the nexus emerged between NGOs
and Bank officials. This way, the actual objective of grading is not fulfilled. Similarly, from the
date the applications are received in the bank, the bank shall not take more than fifteen days to
sanction the loan.

The objective of training is to ensure that the Swarozgaris posses the Minimum Skill
Requirement (MSR). For this an appropriate training may be identified and suitable training
programmes be organized. The government institutions like engineering colleges, ITIs,
Polytechnics, Universities and NGOs may be approached to impart training.

6.2. Sampoorna Grameen Rozgar Yojana (SGRY) in Churu District

6.2.1. Physical impact

RMoL-BASIX Page 9 of 25
During 2003-04, 98.34 per cent of total available funds were spent under SGRY in Churu district.
In the subsequent period 2004-05, about 93.95 per cent of the SGRY funds were spent and in the
current year 2005-06, about 91.38 per cent expenditure was registered. Not only that, out of 1616
sanctioned work, 1485 works were completed, which is about 92 per cent physical achievement.
Similarly, during 2003-04 and 2004-05, the achievement rate was 79.8 per cent and 90 per cent
respectively. This shows a very satisfying level as per as financing and implementation is
considered.

6.2.2. Awareness about the scheme

The perception analysis of the beneficiaries grass root level regarding SGRY in Churu indicates
that a maximum of 42 per cent of them are involved in wage works on an average for 15 days per
year under the scheme. Also, about 25 per cent of same set of respondents didn’t get any
employment under SGRY. Moreover, almost all of the respondents were unaware about the
parameters of the community works to be taken up and selection process of beneficiaries and
perceive that the decision is taken at Panchayat by Sarpanch.

Nearly for 57 per cent of the respondents, the quality of the community assets created is ‘good’.
Also 87 per cent labeled individual assets as ‘good assets’. For about 79 per cent respondents the
assets created under SGRY have not changed the quality of life significantly. On the contrary, 60
per cent of the individual beneficiary respondents of the scheme were satisfied with the assets
they generated and only 20 per cent relates assets to an improvement of life. Many of the
respondents were at fix to name the most important benefits out of the scheme. This shows
unawareness about actual objective of the scheme, which is to provide wage employment.
Regarding the suggestions for the improved implementation with better results of SGRY about 26
per cent respondents suggested that the works undertaken should be based on local needs and
should not be imposed upon.

6.2.3. Relevance of the scheme

Officials at both ZP and PS are not very clear about the relevance of the programme while they
were interested only in execution of the scheme. Almost 90 per cent of the respondents out of the
large section of 64 per cent stated that they would like to see that NGOs do not get any role in the
programme and the entire execution could be transferred to PRIs. The reasons cited for
disagreement with NGOs were that their involvement induces ‘money game’. The execution
could be done at low cost and quite efficiently by Panchayats.

6.2.4. Execution of Works

The guidelines of SGRY mention that the executing agencies may utilize one person from among
the beneficiaries group as animator/leader/facilitator in maintenance of muster rolls, payment of
wages, monitoring of quality of works etc. Such animator/leader/facilitator can be paid wages
applicable to the skilled workers. The guidelines also mention about works to be taken up under
the programme should be of durable nature and should meet technical standards and
specifications. However, in reality, there was a high level of unawareness when most of the
respondents’ either named Gram Sewaks or their own men who actually maintain muster rolls or
facilitates work at field level. Gram Sewaks justified their extra role saying that most of the
beneficiaries were illiterate and unable to play the role of facilitators.
6.2.5. Coordination Mechanism
Panchayat at the village level, ZP at the district and at the intermediate level and the PS bring the
overall responsibility for guidance, co-ordination, supervision, periodical reporting and
monitoring the implementation of the programme. They are also accountable to the State
Government to ensure that the returns/reports in respect of the works taken up for execution in

RMoL-BASIX Page 10 of 25
the district are furnished in time. In the course of the study it was noticed that the paper works are
done on time and MPRs/APRs are available at disposal. The timely file work completion is
mainly due to the computer facility both at PS and ZP level. Monitoring and Supervision is
another weak part of the scheme.

6.2.6. Sustainability of the Scheme

Though guidelines of SGRY strongly advocates sustainability factors of ownership by the target
group, supportive policy, gender equality and to an extent execution is as per guidelines, yet one
of the weak links appeared to be appropriate follow up measures and much needed maintenance.
Also, the works completed under the scheme are not very much in line with the felt need which
shatters public support in maintenance of assets created as they lack ownership feeling.
6.2.7. Observations
Despite having great achievement rate (both Physical and Financial), the SGRY programme
appears to be weak on sustainable front i.e. it is not likely to generate long term benefits for the
beneficiaries. A comparison of stated objectives under the scheme and implementation is
observed:

As against SGRY guidelines, Construction works are imposed upon the habitations. No need
survey done to assess real needs of the wards. Guidelines also states that 22.5 per cent resources
out of ZP and PS funds could be utilized for sustainable income generating assets and priority
should be given to provide economic assets to individual beneficiaries for sustainable livelihood
and the ZP, PS and GP are permitted to spend up to a maximum of 15 per cent of the funds on
maintenance of the public assets created under the wage-employment programmes. In fact, funds
remain almost unutilized as it is included in the same head under Annual Action Plan. Moreover,
utilized funds in construction of assets are no where economic or income generative assets.

The guidelines also state that up to Rs.1 lakh can be utilized by the ZP from their annual share of
funds for training/ capacity building of officials/non-officials of the PRIs involved whereas
during the study no such instances were noticed regarding expenditure of such amount for
training purposes.

Strangely, no monitoring committees of the villagers exist where the work is undertaken to
closely monitor the progress and quality while the work is in progress. More interestingly no one
is aware of the fact at grass root level.

Though the guidelines states that SGRY works in at least 10 per cent Panchayats are inspected by
district-level officers and in 2 per cent Panchayats by the State-level officers but the State/District
officials do not prioritize such inspections and they merely do paper work. Though the scheme is
made for the betterment of the common villagers they are almost unaware of the Annual Action
Plan prepared by the Village Panchayat, which should be thoroughly discussed in the meeting of
the Gram Sabha.

6.3. MP and MLA Local Area Development Schemes

The Ministry of Rural Development initially administered the scheme. Since October 1994 the
Ministry of Statistics and Programme Implementation happens to be the administrative ministry
for the scheme at the Centre. At the level of States, each State and Union Territory designates one
nodal department for effective implementation of the scheme. The head of the district, where the
MP recommends works, is responsible for implementation at the ground level. The authority and

RMoL-BASIX Page 11 of 25
power to receive fund from the centre, to sanction the works recommended by MPs, to get the
work executed and to ensure maintenance of the assets created are vested in him.

6.3.1. Findings and Observations

Churu district has the constituencies of two Members of Parliaments (MPs), MP (Lok Sabha) and
MP (Rajya Sabha) and six Members of legislative Assembly (MLAs), MLA Churu, MLA
Sujangarh, MLA Ratangarh, MLA Sardarshahar, MLA Taranagar and MLA Sadulpur.
Percentage expenditure out of total available funds during 2005-06 was 78.55 per cent which was
81.90 per cent and 60.28 per cent during 2003-04 and 2004-05 respectively. Percentage
expenditure out of total available funds during 2005-06 was 62.38 per cent which was 66.05 per
cent and 60.05 per cent during 2003-04 and 2004-05 respectively. Thus the figure reflects that on
an average 40 per cent of available funds are not spent under the scheme which happens to be
more than that of MP LADS. Thus the figure reflects that on an average 1/3 rd of available funds
are not spent under the scheme.
6.3.2. Physical impact
During 2003-04 percentage of works completed out of sanctioned works in MPLADS was 85 per
cent which decreased drastically to 27.5 per cent next year and then recovered to 67 per cent
during the year 2005-06. The reason for these fluctuations could be many such as lack of proper
monitoring and failure from the side of executing agencies. As far as the MLALADS is
concerned, about 73 per cent of works sanctioned was completed during 2003-04. The figure
slashed to 37 per cent during 2004-05 and again recovered to 65 per cent in the current year. This
way, a similar trend earlier seen in MP LADS could be observed in case of MLA LADS too. It
strongly presents failure of same executing agencies and lag in proper monitoring and control.

6.3.3. Impact as perceived at Grassroot Level

It was identified that the Panchayats were the sole agency proposing particular works to MPs and
MLAs for recommendation. A majority of these works are in conformity with the felt needs of
the population as the proposing agency is people’s institution. However, about 25 per cent of the
respondents are of the opinion that this is not the case all the time as ‘a power play’ comes into
play to get a work sanctioned.

Regarding the extent and nature of involvement of the local people in execution of works
undertaken in the scheme, it becomes clear that the nature of involvement ranged from working
as wage earner, in monitoring and supervision to maintenance of the assets created. As per the
findings maximum involvement of respondent was in works related to drinking water and
sanitation, the reason being greater number of work done in this sector. Also, out of 27
respondents only 1 respondent was involved in maintenance of the school building constructed
under the scheme. Rests of them were involved as wage earners in one or more sectors.

6.3.4. Maintenance of Assets

Maintenance of assets is an important component in these kinds of schemes. In the case of Churu
district a majority of assets created over the years are not maintained by any agency. However,
the responsibility of maintenance of assets should be ensured while sanctioning the work. Local
people also confirmed this situation and rated a high percentage of assets being poorly maintained
in each of the sectors except the education related assets where the maintenance works are handed
over to ‘natural agency’.

6.3.5. Usefulness of the Assets

An appreciating fact emerges about such schemes, the quality of work for majority of the
respondents, about 60 per cent of the sample size, the quality as ‘good’. An overwhelming

RMoL-BASIX Page 12 of 25
majority of the local people interviewed has stated the assets created to be useful to them. For
them, assets have improved their quality of life.

6.3.6. Major Constraints

 Lack of widespread awareness,
 Weak monitoring and supervision,
 Maintenance of the assets,
 No involvement of the local people in decision making process, and
 Lack of training and inputs.
7. Findings, Issues and Challenges: Baran District

7.1. Swarna Jayanti Gram Swarozgar Yojana (SGSY) in Baran District

The similar methodology was adopted in Baran district to conduct the study. The findings of this
study are largely based on the analysis of data collected from a sample of the following:-
(1) District officials coordinating SGSY,
(2) Block level government officials,
(3) Sarpanch/knowledgeable person of sample GP/Villages,
(4) Concerned NGO as a role of facilitator,
(5) Bank officials linked with the scheme,
(6) Swarozgaris from Self Help Groups, and
(7) Individual Swarozgaris.

Profile of the SGSY Swarozgaris interviewed for the study purposes in Baran district is given
below in the Table 7:
Table 7
No. Social Category Educational Status Occupation Eco. Cond.
of
Resp S S OB GE Illiterate Prim Second Abo Ag Lab Oth <5 50 >1
onde C T C N ary ary ve ri our ers 0k k- lac
nt 1la
c
25 9 4 9 3 12 10 3 11 7 7 11 10 3

7.1.1. Findings and Observations

The credit provided to the beneficiaries under SGSY was about 68 per cent and 44 per cent of the
target in the financial years 2006 and 2005 respectively. This is because of very poor condition of
group finance in the district. Only two group-finances were done in the financial year 2005-06 as
compared to 902 individuals financed in the same year. Where as 7 groups were financed in
2004-05 as against financing of 599 individuals. In Baran block nearly 66 per cent of finance was
given for livestock and 29 per cent for the service sector. In Kishanganj block about 68 per cent
of finance was allocated for the service sector and 24 per cent for livestock. Similarly, in Anta
block, about 41 per cent and 48 per cent of finance were allocated for the service and livestock
sectors respectively. Meanwhile, in Atru block nearly 75 per cent of finance was made for the
livestock and 24 per cent for the service sector respectively. In Chhabra block 92 per cent of
finance was for the livestock while in Shahbad Block 53 per cent and 38 per cent of finance were
allocated for the service and irrigation sectors respectively.

It shows that in almost all blocks maximum livestock finance was there followed by service
sector. It further explains that the agencies involved could not identify other potential activities in
the district to ensure an effective implementation of the SGSY. According to the guidelines there

RMoL-BASIX Page 13 of 25
should be 4-5 key activities for each block under the scheme which was not there as livestock and
service sector finance was common in all the Blocks.

7.1. 2. Awareness about the scheme

Regarding the awareness about the scheme about 92 per cent shown awareness about the name of
Bank from which they got the loan. In this case, most of the respondents are the individual
beneficiaries. Further, about 72 per cent of respondents know about the loan and subsidy
components while the other 32 per cent of respondents know about the facilitators. According to
the majority of the respondents the Gramsevak was the facilitator and while in the knowledge of
4 people their facilitator was A.E.O/ NGOs. These 4 persons were from two newly formed SHG.

About 80 per cent of respondents are not aware about the group loaning facilities while only 8 per
cent of them were aware about grading exercise. Additionally, only 12 per cent respondents have
an idea about the insurance components attached with the scheme. Surprisingly, all the
respondents were not aware about the marketing support that can be provided under SGSY.

About 48 per cent of them knew about the scheme from panchayat/ Gramsevak while 32 per cent
of respondents came to know about the scheme through the Bank. There was no response about
the SHG because the people here were not aware about the SHG benefits and finance to self help
groups from SGRY. Furthermore, about 72 per cent of the respondents were not fully awared
about the scheme while 56 per cent of respondents needed information about different economic
activities and marketing linkage to sell their product.
In Baran district the beneficiaries were not getting proper prices for the milk they produce, where
as maximum finance was allocated for the diary sector. In this area, poor grazing land is the
biggest problem for dairy related activities and also there is no facility of veterinary hospital.
Proper infrastructure and market linkage is essential to provide full benefits to the beneficiaries.
About 52 per cent of beneficiaries need training for different economic activities.
7.1.3. Economic Impact
During the scheme period the majority of people, around 64 per cent, have assets between
Rs.1,000-25,000 as they have created some assets due to SGSY loans. Three beneficiaries have
assets more than Rs.50, 000 as one got benefits from both DPIP and SGSY and other two got
benefits from IAY and SGSY. The annual income of 45 per cent of respondents increased from
Rs.1, 000 to Rs.4, 000 and for 15 per cent of respondents’ annual income increased between Rs.4,
000 to Rs 8,000.This increase was not only due to SGSY but also due to other factors like getting
more wage employment and better return from farming due to good monsoon.

7.1.4. Usefulness of the Scheme

To assess the perceived impact of the scheme the views of the swarozgaris about the usefulness
of the SGSY is very important. An overwhelming majority of the respondents accepted that the
scheme is very useful for them and that the activities undertaken and financial help provided has
improved their quality of life. Though for few beneficiaries the interest part charged by the Banks
is more than the subsidy amount. Similarly, the head/sarpanch/knowledgeable people of the
village/panchayat and the majortity of 52 per cent of the respondents expressed complete
dissatisfaction about the process of implementation of SGSY because the subsidy amount
provided is less as compared to the interest charged on loan. They compare this scheme with the
DPIP which provides 90 per cent subsidy.

7.1.5. Relevance of the Scheme

The responses of the district officials, block officials, bank staffs, NGOs volunteers and other
knowledgeable persons about the point ‘whether the scheme in present form is relevant in

RMoL-BASIX Page 14 of 25
overreaching the overall objective to ensure sustainable livelihood for BPL families’ were
indicating different degrees of answers and opinions.. A large section of the respondents, about
72 per cent, expressed that a serious change is required in the guidelines making provision for
smaller groups as there is lack of common interest among large groups, making provision for
some legal guarantee from the facilitator that they must take 40-50 per cent of groups into the
final stage and the reduce the amount given to the facilitator up to first grading that is around 50
per cent or Rs.5000.

7.1.6. Selection of Key Activities

Most of the respondents came to know about the scheme through the gramsevak/ sarpanch and
about the loans given by the Banks to start some particular activities like dairy, goatry etc. but the
beneficiaries, at this end, were not asked about their choices.

7.1.7. Asset Creation

The study indicates that the Swarozgaries received the full amount including the loan and subsidy
components under the scheme. Also, they have the freedom to procure the asset themselves. The
Swarozgari procure the asset within one month from the date of release of the money by the bank
and then inform bank about the same by furnishing a receipt of items purchased. The Banks
ensured the quality of purchased items by the beneficiaries under the scheme through close
monitoring and physical verification of the items purchased. The PS sends the BPL list to the
bank and the bank officials conduct enquiry about the beneficiary and short list the list and
finance the potential one who can repay the loan.

7.1.8. Financial Assistance, Recovery process and Follow up Measures

On the matter of recovery rate, for a majority of Banks, the rate of recovery is around 30-40 per
cent in case of SGSY and incase of other schemes like NABARD bank linkage programme, the
rate of recovery is more than 90 per cent. In NABARD case no subsidy is given and only needy
applicants try to avail loans but incase of SGSY the Bank officials have to go to the individual to
disburse loans to meet their own targets. The Bank officials visited to the beneficiaries in regular
interval of 2-3 month but in spite of this the recovery rate is very low. Under the recovery process
the Banks first send the demand notice to the beneficiaries and if the loans are not paid then they
give the defaulter list to RACO to recover loan with help of RODA (Removal of Difficulties
Act).

7.2. Sampoorna Grameen Rozgar Yojana (SGRY)

There is an increase of 13 per cent in total funds available under SGRY and 7 per cent in works
undertaken under SGRY in the period 2005-06 as compared to the figures in 2004-05. About 34
per cent and 26 per cent of man days were generated for SC and ST communities and 40 per cent
of man days generated for others out of the total man days generated under SGRY program. Out
of the total man days generated under SGRY programme. About 50 per cent of man days were for
woman which is 20 per cent more than minimum man-day mentioned in the guidelines for
women, 24 per cent for the landless people and 26 per cent for other weaker section.

7.2.1. Impact at Beneficiary Level

Only about 13 per cent of the people were getting employment for more than 30 days in a year
where as 26 per cent of people got employment for 20-30 days under this scheme. About 17 per
cent of the respondents did not get any work under the SGRY. A majority of the respondents i.e.
44 per cent got employment for less than 20 days. In this light the SGRY seems providing
employment only for short durations for limited portion of the villagers. It is surprised to know
that about 70 per cent of respondents didn’t know how the community works are being selected
and who selects the work. However, 60 per cent of respondents knew as to how the individual

RMoL-BASIX Page 15 of 25
beneficiaries were selected. Also, according to most of the sarpanch and gram sevaks that all
decisions were taken in the gram sabha and works selected based on locally felt needs.
When asked to indicate steps necessary to improve performance of the scheme, 70% of
respondent suggested that Annual action plan should be prepared after taking in views of all
members in the village/panchayat and works should take locally felt needs into account and 80%
of respondent suggested that all information (works to be taken up, sanctioned budget, number of
people to be employed, duration of work) should be displayed in the panchayat bhawan before the
work started.
In terms of the quality management of the community and individual works done under the
scheme for more than 44 per cent of respondent the community works were of poor quality where
as for 52 per cent respondents the individual works were relatively of good quality. This is so
perhaps because most of the infrastructures developed for the communities are kharanja roads
which are not durable. In case of individual works the quality is good because the beneficiaries
themselves execute the work

7.2.2. Usefulness of the Assets created

A majority 48 per cent of the respondents stated that assets created didn’t meet their felt needs
and while other 44 per cent of them said the community assets created did not improved overall
quality in their life as the assets created for community were of poor quality and the respondents
were not aware about the total fund spent for the work. In the same manner, regarding the impacts
of assets created under the scheme for the individual beneficiaries, a majority 87 per cent
respondents said the assets created met their felt needs. Adding to this, about 70 per cent of them
said the community assets created also improved their quality of life because those who were
needy got the benefits under the scheme.

7.2.3. Change in Economic Condition

Regarding the changes made in the economic condition of the life through the SGRY 74 per cent
respondent report improvement in assets is between Rs.10.000 to Rs.25, 000 during the SGRY
period. It is mainly due to individual benefits from house. In case of the other 26 per cent of
respondents’ improvement in economic condition was up to the level of Rs.1, 000 to Rs. 10,000.
Additionally, about 57 per cent assets increased due to house construction from SGRY and 13 per
cent due to livestock availability. This is mainly because few of the respondents were also SGSY
beneficiaries. About 30 per cent of assets increased due to increase in others income like getting
more wage employment and better returns from farming practices etc. In the case of the SGRY
individual assets there is no need to repay the money so they don’t have any liability.

7.2.4. Usefulness of the Scheme

As far as the most important benefit which the beneficiaries get out of the SGRY, about 60 per
cent of the respondents, assets are the most important benefits from SGRY where as 56 per cent
respondents were of the view that the food grain component is the most important benefits from
SGRY. Very few respondents i.e.21 per cent were of the view that the community infrastructure
is the most important component of SGRY. It is because people were not aware about the
community infrastructure and also not satisfied with the quality of the assets. They were not
aware about the annual action plan.

7.2.5. Relevance of the Scheme

The officials at both ZP and PS level view that the individual assets created through the scheme
actually meet its objectives but all other works are selected based on the annual action plan
prepared at the GP level. There are several lacunas in the preparation of annual action plan and
the main lacuna in this case is poor monitoring. The construction of infrastructure provides some

RMoL-BASIX Page 16 of 25
employment to local people but it didn’t provide employment through out the year. So, for the
majority of 57 per cent respondents the scheme didn’t provide sustainable livelihood. Officials at
ZP and PS levels and Sarpanchs says that the most of the works under the scheme were provided
to the households of the BPL category while the individual beneficiaries were selected at the
gramsabha level with its formal proposal. The beneficiaries responded that the individual works
were executed by themselves but the gramsewak provided money in three phases and the
community works executed by the sarpanch/gramsewak. It is mentioned in the guidelines that the
DRDA and PS can select the executing agencies other than the GP but here all the works from the
respective PRIs executed by the GP.

7.2.6. Maintenance of Assets

Regarding the maintenance of assets created under SGRY, the sarpanch and gramsewak said the
some funds were made available with the ZP for this purpose that is not being used. Also, there is
no clarity about the amount or percentage of the fund created for this provision. Most of the
constructions done in the area under the scheme were related with the kharanja roads, it requires
the same amount of fund for maintenance again. The GP implement all types of work from
different scheme like SGRY, MPLAD&MLA LAD, Akalrahat etc. so the concerned authorities
were busy with other works as well. The GP is the sole authority in implementing, supervision
and monitoring of works undertaken from its share of fund. The ZP and PS have the overall
responsibility for guidance, co-ordination, supervision, periodical reporting and monitoring the
implementation of the programme. The concerned authorities mainly select the GP for the
execution of the work and are also accountable to the State Government to ensure that the
returns/reports in respect of the works taken up for execution in the district are furnished in time.

7.2.7. Sustainability of the Scheme

According to the DRDA officials regarding the sustainability of the scheme most of the works
executed by the GP and the annual action plan which is crucial for the scheme is also prepared by
the GP but it is not prepared properly because of politics and vested interest of the sarpanch. Due
to this, the works completed under the scheme are not very much in line with the felt needs of the
people.

7.3. MP and MLA Local Area Development Schemes

The profile of the respondents selected to review the MP MLA Local Area Development
Schemes is given below in the Table 8:
Table 8
No. Social Category Educational Status Occupation Eco. Cond.
of
Resp SC ST OB GE Illiter Pri Second Abo Ag Lab Oth <5 50 >1
onde C N ate mar ary ve ri our ers 0k k- lac
nt y 1la
c
30 14 5 8 3 12 8 3 5 15 3 21 6 3

Types of works sanctioned in the district mainly consists of construction of roads, toilets, school
boundaries and classrooms, providing drinking water facilities through hand pumps and motors
etc. However the maximum percentage of works undertaken under these schemes is construction
of the kharanja and cc roads.

7.3.1. Progress

RMoL-BASIX Page 17 of 25
Baran district falls under the constituencies of two Members of Parliaments (MPs), MP Jhalawar
and MP Kota and four Members of legislative Assembly (MLAs), MLA Baran, MLA Atru, MLA
Chabra, MLA Kishanganj.

About 65 per cent and 18.84 per cent of funds were spent under MP LAD in the financial year
2005-06 and 2004-05 respectively. This shows the poor utilization of funds under MP LAD in
time. This is mainly due to delay in sanctions of works from the MPs’ side. Only 20 per cent of
the total works sanctioned were completed till March 2005 as compared to 47 per cent till March
2006.This shows that most the works were sanctioned at the last moment were completed by the
end of financial year at any cost. Also, about 50 per cent and 45 per cent of funds available were
spent under MLA LAD in the financial year 2005-06 and 2004-05 respectively. This shows the
poor utilization of funds in schedule time under MLA LAD and the delay in sanction also detract
from the quality of work because the implementing agencies get less time to plan and complete
the work. About 81 per cent of the total works sanctioned under this scheme were completed till
March 2006 as compared to 68 per cent till March 2005. The figure shows an increase in number
of incomplete works in case of MLA LAD and it also shows most of the works completed at the
end of stipulated time.

7.3.2. Involvement of Local People

The maximum involvement of respondent under works concerned with this scheme was in
relation to the construction works of road and bridges in the area. The reason behind this is that
most of the works were sanctioned for these sectors. Rests of the respondents were involved in
wage works in one or more sectors. The maintenance of the assets created is another important
aspect of the scheme. The majority of assets created over the years were not maintained by any
agency according to the most of the respondents of this study. However, they suggested that the
responsibility of maintenance of assets should be ensured while sanctioning the work.

For about 37 per cent of the respondents the quality of work done in the area was poor while for
the other 33 per cent of them the quality of work was good. Most of the sarpanchs were positive
in this concern.

The perceived impacts of the scheme regarding the asset created have met the felt needs of the
beneficiaries or not and whether it has improved their quality of life, an overwhelming majority
of them admitted that the assets created neither improved their quality of life nor met their felt
needs. This is because very few activities were taken under MP and MLA LAD and these works
are very small one.

7.3.3. Major Constraints

 Lack of widespread awareness
 Monitoring and Supervision
 Maintenance of the assets

7.3.4. Conclusion
Though having a strong PRI base the achievements in case of MP and MLA LADs in the district
does seems to be convincing enough in overreaching the stated objectives. The schemes must be
implemented as per the set standards in order to translate positive impact over the local masses of
each constituency. The following Table 9 depicts the difference in stated objectives and the
implemented scenario with remarks:

Table 9
Stated Implemented Remarks

RMoL-BASIX Page 18 of 25
 Centre/State to provide  No such comprehensive  No one at district level
training materials for training materials other demands for it and they refer
conducting training of than Guidelines reaches Guidelines whenever needed
district officers district  According to government
 Moreover training officials its sheer wastage of
sessions do not take time and training is really not
place at any level required
 MP/MLA to  Most of the times pre
recommend works decided works takes  Lots of power play comes into
which meet the locally place which has nothing action which undermines real
felt community to do with actual needs needs of the people
infrastructure and of local people
development needs  Repetitive nature of  MP/MLA are unaware of real
with emphasis on the works are recommended needs of his constituencies
creation of durable for example only Roads
assets in the respective and Bridges sectors
constituency given priority over the
years
 MP/MLA to attend  Generally no MP/MLA  MP/MLA are too busy and
review meetings every attend such meetings never prioritize local area
month with development schemes
Implementing  They are unaware of any such
Agencies meetings too and if informed
they do not respond
 DM should inspect  The target set is covered  DM is too busy to prioritize
at least 10% of the on paper but such this field inspections
works under physical inspections are
implementation very rare  Responses at work site
every year confirms that DM never comes
involving to inspect unless some work is
MPs/MLAs on priority list
whenever possible
 Ensure provisions  No proper maintenance  No separate funds allocated for
for proper and upkeep of the purpose
maintenance and community assets
upkeep of the created is provisioned  No roles and responsibilities
assets created except done by ‘Natural decided for the same
under the scheme Agencies’ like schools
 To ensure the  Quality being not a  No strict monitoring system
works done as per concern but certainly  Monitoring agencies focuses
prescribed time frame. Never a more on paper work and
procedure , quality work is completed on physical verifications are done
and time frame time and is delayed for mainly by Asst. Eng. that too
various reasons for ongoing works

7.3.5. Suggestions and Recommendations

Some of the important suggestions for revitalizing the scheme are:
 The majority of the MPs and MLAs do not have full information even about the works
they have recommended for undertaking effective monitoring and supervision of the
works in progress. They should be well aware off about the activities.

 Relevant information about other developmental activities in the district may also be
made available to the MPs and MLAs. Equipped with these detailed information they
may be in a more comfortable position to recommendation specific works.

RMoL-BASIX Page 19 of 25
  To help the MPs and MLAs to priorities the felt needs of various groups of population,
the PRIs may be asked to provide a list of works to be recommended to the MPs and
MLAs annually. This list may also be displayed conspicuously for public information.
 For some of the assets there is a natural agency for maintenance, upkeep and use. For
others, it is necessary to locate an agency to maintain the assets. This should preferably
be done before the work is sanctioned. Availability of adequate fund for this purpose will
also need to be ensured either from public fund or through user charges to be collected,
wherever possible.
7.3.6. Key Success Factors
There are certain components which, if fulfilled, will certainly prove critical for success of any
scheme. The following points indicate towards this:
1. Direct benefits should be realized by any individual linked to programme.
2. Indirect benefits inherent in the scheme should be known to the beneficiaries.
3. Benefits of the schemes should to given to the entire community.
4. Identification of the target group should be made before the schemes are implemented.
5. The roles and responsibilities of each stake holders should be clearly identified and discussed
before and during the implementation of the scheme.
6. Scheme should be made responsible to increase incomes of the beneficiaries
7. Decision making power should be given to the community involved with the scheme.
8. Involvement of the local people in the entire process should be made sure.
9. The required financial assistance should be provided to the beneficiaries under the scheme.
10. Training facilities under the scheme should be provided both at beneficiary level and
implementers’ level.
11. Institutional linkages or linkages to banks or some FIs should be made to facilitate
beneficiaries in the line of better implementation of the scheme.
12. External factors (EF) such as culture, social considerations etc. play a very crucial role in the
outcome of any programme. Such EF should be identified before implantation of the scheme.
13. Availability of funds is another component on which the entire process of execution depends
upon. Proper rationing of funds could be one of the attributes to success of any scheme.
14. Capacity building of implementing and executing agencies involved is very necessary for
smooth running of the programmes.
15. There must be a proper coordination between all the stakeholders of the scheme. For this the
roles and responsibilities should be well defined.
16. Fulfillment of the felt needs of the entire community/individuals is necessary.
17. Gender equality is also very crucial for sustainability of scheme i.e. success of the scheme in
long run. Equal opportunity to both men and women can lead into environment for overall
attainment of stated objective of the scheme.
18. Supportive policies of the concerned agencies during the implementation should be made
clear and effective.
19. Less dependency of beneficiaries on outside support/assistance should be seen in terms of the
success of programmes.
20. Knowledge about the process of implementation should be made available to all the
community members and stakeholders.
21. Similarly, the knowledge about benefits should be communicated to all the concerned
persons.
Proceeding of the workshop on Development and Implementation of Livelihood Generating
Programmes: Constraints and Alternatives
Date – 06 December 2006

RMoL-BASIX Page 20 of 25
Background and Objectives

Rajasthan Mission on Livelihoods, Jaipur and Urmul Trust, Bikaner jointly organized a one-day
workshop on 6 Dec. 2006 in the conference hall of Academic Workers College and Distant
Education Center, Rajasthan Agriculture University in Beechhwal, Bikaner. The workshop was
presided over by Sri. M.L Mehta, ex Chief Secretary, Rajasthan state govt. and Vice President,
RMoL. The primary objective of this workshop was to discuss various constraints and
alternatives associated with the development and implementation of livelihood generating
programmes. Participants of the workshop include Collector, district Churu, officials from
various administrative departments, representatives from NGOs, bankers and professors from
university and various people from different departments. Chief Guest, Sri.Vinod Kapoor,
Divisional Commissioner inaugurated the workshop with the tradition of lightening a lamp before
the idol of Goddess Saraswati. Sri. Arvind Ojha, Secretary, Urmul Trust, Bikaner coordinated the
workshop thereafter.
Sessions 1 and 2

Shri. Arvind Ojha, Secretary, Urmul Trust, Bikaner, expressed his concerns about the
challenges of livelihood in deserts in his inaugural speech. He emphasized that diversifying the
means of livelihood instead of depending primarily on agriculture, will help generating income
even during prolonged drought periods.

Shri. M.L Mehta addressed two main issues in his presiding speech- problems of
agriculture based livelihood and unemployment. At state level, two third of the population in
Rajasthan depends solely on agriculture for its livelihood and contributes to only 25% of the total
income. The rest one third of the population contributes to 75% of the total income through non-
agricultural means. In Bikaner division, like most parts of Rajasthan, the primary occupation is
agriculture. Shri. Mehta suggested that by improving the agriculture significantly, we could help
the larger part of the population to generate more income. He was hopeful that the remarkable
improvement in infrastructure, transportation and markets during past 50 years could help
generate more employment opportunities in agriculture sector.

Shri. Mehta consented that fodder development is a profitable enterprise for Bikaner
because it is a border district. He promised his support in establishing the fodder seed bank in
Bikaner. He also emphasized the significance of cattle breeding programmes, well planned use of
water through sprinklers and drip irrigation, water management and promoting tourism in the
desert economy.

Sri. Vinod Kapoor, Divisional Commissioner, said that Bikaner region needs more
livelihood generating programmes in various sectors like carpet making, sheep rearing, milk
production, tourism, lignite based energy industry, khadi industry and cottage industry. He
showed concerns over uncontrolled water harvest, degradation in cattle farming and
disappearance of various indigenous animal species in the deserts of Indra Gandhi Canal Project
region of Bikaner division. He said these areas need immediate attention. Although, Rajasthan
state produces 40% of the wool in the country, carpet industry is not prospering in Bikaner region
due to the lack of woolen carpet network. Improving the quality of woolen khadi designs and its
marketing channels can increase employment opportunities. He said that the Camel Hide Training
Institute should also be re-established in Bikaner. He called for pooling the training activities of
RMoL at district level to maintain the quality and coordination among various training
programmes.

RMoL-BASIX Page 21 of 25
 Shri. Naveen Mahajan, Collector, Churu emphasized that Churu is a drought prone area.
He said that the short-term measures, spanning 5-6 months, designed by the government for
drought relief are always inadequate. The premature exit of monsoon damages about 10 lakh ha.
of kharif crop every year. This calls for storing the water at farmer level. He insisted that there is
an urgent need of drought proofing with long-term perspective to materialize the farfetched
results. He also proposed construction of tanks to boost rain fed farming in Churu. This could
provide the life saving irrigation to mature crops and enable the farmers to harvest some produce
if not all. Shri. Mahajan stressed on the importance of fodder management because livestock is
the backbone of Churu economy. In this context, he said, there is a need to have bulk coolers at
Sujangarh, Rajgarh and Ratangarh.

Sri. Alok Gupta, Collector, Bikaner suggested that the government operated employment
generating scheme can follow the models of successfully implemented RMoL training
programmes and government projects. It is necessary to execute these schemes with fairness and
integrity so that maximum number of capable and deprived people can benefit from them.

This session further moved in an interactive mode.

Session 3 and 4

Dr. A. K. Gahloth, Dean, College of Cattle Farming and Veterinary Science, Bikaner
started the post lunch session with a presentation. He suggested that cattle farming might be the
best alternative occupation while agriculture sector is marked by decrease in size and income of
farm units. Rajasthan is one of the largest milk producing state in the country but is unable to reap
appropriate profits due to the lack of basic facilities like butcher house and livestock extension
services, said Dr. Gahloth. Many of the excellent local species of cow- Tharparkar, Rathi and
sheep- Chokhla, Nasi, Magra, Sonari, Jaisalmeri, Pugal, etc. are on the way to extinction. Dr.
Gahloth appealed that “Heritage Gene Park” should be made to preserve these valuable species.

Dr. Ramanand Goswami, Director, Extension Education proposed that low risk farming
techniques are best suited for Rajasthan state. He said that the farmers should adopt mixed
farming to face the adversities and ensure income lest one crop should destroy. Agriculture, being
the primary occupation, should be included as a subject in the curriculum of mainstream primary
education, asserted Dr. Goswami. Furthermore, he added, enterprise should be the basis of
training period. A ‘Refresher Course’ should follow each training session, to summarize all the
important data and information for the maximum benefit of trainees. He also suggested that
regular evaluation and continuous improvement of the government employment schemes would
make them more practical and useful assuring maximum benefit to the needy on time.

Dr. A. K. Dahma, Director, Agriculture Enterprise Institute, Bikaner threw light on

employment opportunities in local marketing system. As world trade is becoming easier, more
employment opportunities are opening up in the local markets, which might consume up to 4.5
lakh people, said Sri. Dahma. A well-trained human resource will prove very effective in
capturing small businesses. The young people should be trained more and more to make them
capable of self-employment and competing in private sector instead of depending on government
jobs. Shri. Dahma laid stress on competent training programmes, that are in accordance with the
market demands, to make it possible.

The session ended with suggestion from Shri. M.L. Mehta that RMoL can fund short
duration dairy management course for the beneficiaries of PMRY, two-month courses on

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 entrepreneurship of dairy services and also, short term programmes for the people in retail
businesses.

Shri. Champa Lal, Ex-chairman, Raj. Khadi Village Development Board, Jaipur
emphasized the need to revive Khadi at industrial level. Khadi symbolizes our nation’s culture
and should earn the status of “Heritage”, he said. State government and Khadi Village
Development Board should not only boost the sale of old khadi clothes but also take efforts to
give it a contemporary look to make it more attractive for younger generations.

Shri. Shailesh, from Urmul Dam Institute, Lunkaransar, discussed in detail the various
efforts of Urmul to encourage traditional arts and crafts. He said that the people who keep these
traditional crafts alive in the villages should be recognized and encouraged so that the crafts can
be preserved in modern times and also, be used to generate employment for more end more
people. There is a lack of capable trainers to develop wool industry in Bikaner region. Urmul
community is trying its best to provide employment to roughly 200- 250 families according to
their known traditional skills.

Concluding Session

At the end, the house was open for ideas for livelihood generation in the areas. The
various needs identified were; training for veterinarians, furthering research on tanks, training
labourers in stone carving, circulating a bulletin of all the programmes, finding trainers in carpet
making at Bikaner; promoting carpet development network, developing pasture land in an
organized manner; and promoting the sheep breeds suitable for wool production.
Shri. M.L. Mehta suggested to develop a fodder seed bank for sewan grass. He then
thanked all participants on behalf of RMoL for their valuable inputs and in depth discussions.

The workshop ended with vote of thanks to all by Mr. Arvind Ojha.

The main findings of the workshop are

 Diversifying the means of livelihood, instead of depending primarily on agriculture,

will help generate income even during prolonged drought periods.

 Since Bikaner is the border district, establishment of fodder seed bank in Bikaner can
be a gainful venture.

 Cattle breeding programmes, well planned use of water through sprinklers and drip
irrigation, and water management are important aspects to be looked at.

 Sectors like carpet making, sheep rearing, milk production, tourism, lignite based
energy industry, khadi industry and cottage industry have significant potential in Bikaner
distt. Improving the quality of woolen Khadi designs and its marketing channels can
increase employment opportunities. The training activities of RMoL at district level
should have a level of coordination and quality.

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 In Churu, there is an urgent need of drought proofing with long-term perspective.
Construction of tanks can boost rain fed farming in Churu by providing the life saving
irrigation to mature crops and enabling the farmers to harvest some produce if not all.

 In programmes such as DPIP & SGSY, groups should be converged and good groups
should be selected for further activities. Also, selection of personnel by NGOs should not
be compromised.

 Short duration dairy management course for the beneficiaries of PMRY, two-month
courses on entrepreneurship of dairy services and also, short term programmes for the
people in retail businesses can be good prospects for providing employment opportunities
to the youth.

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Composition of RMoL:

Sl. No. Name & Designation

1. Hon’ble Chief Minister Chairman
2. Shri M.L.Mehta, IAS (Retd.) , Ex-Chief Dy. Chairman
Secretary, Rajasthan
3. Dr N S Hegde, Chairman, BAIF, Pune Member
4. Dr Tushaar Shah, International Water Member
Management Institute
5. Shri V K Ladia, CMD, Shree Rajasthan Syntex Member
Ltd. Dungarpur
6. Shri Rajiv Jain, Managing Director, M/s Member
Sambhav Gems, Jaipur
7. Shri Dilip Baid, Chairman, Federation of Member
Rajasthan Handicrafts Exporters Association
8. Shri Brij Mohan, ED (Retd.), SIDBI, Lucknow Member
9. Shri Vikram Golecha, Ex. Chairman, CII, Member
Rajasthan Chapter
10. Shri Arun Goyal, Director, Academy of Member
Business Studies, New Delhi
11. Shri Ravi Srivastva, Professor, Center for Member
Regional Development Studies, Jawaharlal
Nehru University, New Delhi
12. Shri Vijay Mahajan, Chairman, BASIX Principal Advisor
13. Shri D P Bagchi, Former Secretary, SSI, GoI Principal Advisor
14. Shri Apurva Kumar, ED, Hotel Clarks Amer, Member
Jaipur

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