Tribal Sub-Plan in Maharashtra

A Diagnostic Study

TATA INSTITUTE OF SOCIAL SCIENCES, Mumbai

Supported by

unite for children

UNICEF, Maharashtra
December 2015
Tribal Sub-Plan in Maharashtra
A Diagnostic Study

TATA INSTITUTE OF SOCIAL SCIENCES

Mumbai

Supported by

unite for children

UNICEF, Maharashtra

December 2015
 Study Team

Project Directors/Principal Investigators

Prof. S. Parasuraman, Director, TISS

Programme Management Specialist, TISS

Prof. T. Rajaretnam

Senior Research Officer

Ms. Shilpi Gupta

Research Officers
Ms. Nupur Kulkarni
Mr. Anup Hiwrale
Mr. Premsagar Tasgaonkar
Mr. Sagar Zende

Associate Research Officers

Ms. Namrata Lokhande
Ms. Sandhya Rajhans
Ms. Sharayu Phadke
Mr. Narendra Gosavi
Mr. Prashant Salave
Mr. Shankar Kokane

Office Assistant
Ms. Pratiksha P. Singh
 Foreword
In India tribal people are often called “Adivasis” and the government recognizes them
as scheduled tribes (STs). Scheduled Tribes (STs) and also Scheduled Castes (SCs) are the
disadvantaged sections of the society due to socio-economic exploitation and isolation
since times immemorial. According to the Census of 2011, the ST population in India was
104.5 million, accounting for 8.63 percent of the total population of the country. The tribal
population in Maharashtra in 2011 was 10.5 million constituting 9.35 percent of the total
population of the state. The state has the second largest tribal population in the country, next
only to Madhya Pradesh, with 10 percent of the total ST population of India. Numerically,
Maharashtra state has the largest number of tribal population in the country. Though the ST
population in India is numerically less as compared to the general population, they deserve
special attention as they are socio-economically and culturally backward and isolated from the
general population. Even among the STs, there are large differences between them in terms of
numerical strength, history of settlement, geographic ___location, livelihood pattern, language,
culture, human development, political empowerment and developmental aspirations.
Further, each tribe is an endogamous group and interaction between groups and outside
world is very much limited. In recognition of their backwardness and the need for government
support, as early as India’s independence, provision has been made for administration and
control of scheduled areas and scheduled tribes in the 5th Schedule of the Constitution of
India. There are many constitutional safeguards for the welfare, development and protection
of the STs such as equal rights and opportunities; protection against discrimination on the
grounds of caste, religion, race, sex, etc; reservation in appointments and in Lok Sabha,
Legislative Assembly, Local Government seats; protection against social injustice and all
forms of exploitation; and so on.

The Tribal Sub-Plan (TSP) strategy was evolved for the rapid socio-economic development of
tribal people and the important aspect of this strategy was to ensure allocation of funds for
TSP areas at least in proportion to the ST population of each State/UT. The TSP Programmes
are financed by the following sources: (i) Tribal Sub Plan funds form State/UT Plans and Central
Ministries/Departments, (ii) Special Central Assistance (SCA) to Tribal Sub Plan, (iii) Grants under
Article 275 (1) of the Constitution to the States/UTs, (iv) Funds through Central Sector Schemes,
(v) Funds from Centrally Sponsored Schemes and (vi) Institutional Finance. For implementing
the TSP strategy, Integrated Tribal Development Projects (ITDPs) were delineated in the tribal
concentrated States. Special Central Assistance (SCA) to Tribal Sub Plan (TSP) and Grant-in- Aid
under Article 275(1) of the Constitution were also initiated in this plan to provide additional
funds to TSP implementing States for income generating activities, infrastructure development
and administrative reinforcement.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

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The study undertaken by the Tata Institute of Social Sciences (TISS) in collaboration with
UNICEF Maharashtra field office on the TSP examined review reports of the various committees,
working groups and research reports on the status of socio-economic variables such as literacy,
school enrolment, educational attainment, health indicators, per capita income, employment
opportunities, access to basic amenities like drinking water, housing, drainage facility and
electricity, and the assets possessed. These showed wide gaps between the STs and the general
population. The reviews also brought out the tardy implementation of the TSP by the various
States/UTs and Central Ministries/Departments, lacunae in policy implementation, allocation
and utilization of funds, structural inadequacies at the national, state, district, block and village
levels and a need for periodical status reviews and evaluation of the impact of the schemes/
programmes.

A detailed analysis of TSP formulation, fund flow, implementation and monitoring mechanism
followed by the state of Maharashtra, and its impact on the scheduled tribes in the state was
done. The report proposes to attempt the following:

1. To understand the planning and implementation strategy adopted in the implementation

of the TSP at different levels, from state to village levels.

2. To review the process of flow of funds from state to village levels in the last five years
and to analyze its size, distribution and adequacy (in proportion to population), choice of
schemes (equity and inclusion of social sectors), disbursement mechanisms, timeliness,
and its synchronization with planning cycle.

3. To assess the programmatic as well as financial monitoring and evaluation system practiced
in the implementation of TSP and to recommend corrections therein.

4. To investigate the reach of benefits to the needy and to assess the nature of community
participation in planning, implementing and monitoring of TSP.

5. To prepare a Tribal Atlas for the state of Maharashtra with particular reference to TSP areas.

6. To recommend policy and program measures for the effective implementation of TSP and
for the greater participation of tribal community.

The Fifth Schedule area in Maharashtra cover parts of Thane, Palghar, Nashik, Gondia, Dhule,
Ahmadnagar, Pune, Nanded, Nandurbar, Raigarh, Amravati, Yavatmal, Gadchiroli and Chandrapur
districts. In Maharashtra, the TSP strategy is being implemented in the Tribal areas of 15 districts,
68 blocks and 13 cities. For our study, we proposed to consider three districts representing three
regions of the state. In the next level, within the selected districts we proposed to select three
blocks at the rate of one per district. The districts and blocks have been selected in such a way

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 v

that one is an ATSP, MADA or Mini-MADA cluster. In the third level, within the selected blocks
we selected six panchayats or clusters randomly at the rate of two per block. For community
interaction, we selected one village per selected panchayat/cluster (total six villages). Among
the 13 cities in the TSP strategy, we selected one city for detailed investigation.

Prior to starting the field activities, the research team conducted a desk review of TSP and
formulated study questions and methodology. Further, discussions were held with officials
concerned with the implementation of TSP at Governor’s office and at the state government
(Tribal Development Department). Discussions were also held with the Tribal Research and
Training Institute (TRTI) and Yashwantrao Chavan Academy of Development Administration
(YASHADA) about the studies they have conducted, the findings of their studies which were
appropriately incorporated into the study tools.

In the selected units (state, districts, blocks, city and villages, as the case may be) a team of
research staff visit and referred to documents regarding TSP planning and implementation;
budget allocation and expenditures (or the amount transferred to lower units) including their
timings of realization; minutes of review meetings; instructions/orders that were passed to the
lower implementation levels; list of projects implemented including their nature, cost, duration
and distribution; and a sample list of beneficiaries (at block/panchayat/cluster levels). In
addition, discussions were held with officials concerned (with the planning and implementation
of TSP) and field personnel about planning and implementation of TSP, financial disbursement
mechanisms followed, programmatic and financial monitoring and evaluation procedure
adopted, decentralization of powers and devolution of funds, and community participation in
planning and implementation TSP, and so on.

In addition to seeking documents from program agencies and discussion with program
functionaries, a small sample of beneficiaries were listed and contacted at their addresses
to verify whether the reported benefit had actually reached the needy or not. Further FGDs
were conducted in the selected tribal villages so as to understand their knowledge about TSP,
perception about the programs and attitude towards the implementing authorities.

This report provides insights into the functioning and programs of the Tribal Development
Department and the administrative departments of the State Government with respect
to the TSP in Maharashtra from the perspectives of the functionaries of Tribal Development
Department, administrative departments at district level, and the tribal community. The report
may be a useful source of information not only to the Government but also to NGOs, social
workers and the research community in general.

A number of recommendations are provided, which derives largely from the principles of
people’s participation, subsidiarity, and additionality. The report recommends building on the

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

vi

rights-based approach, and in trusting local communities to effectively govern themselves

since devolution, decentralisation, and effective social audit are the pillars of such interventions.
It is hoped that the report will contribute in transforming the TSP into a more people-centric,
responsive, and efficient tool of tribal welfare.

Dr. S. Parasuraman
Director, TISS

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

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Message
Maharashtra is one of the ten states which have Fifth Schedule areas.
With more than ten million tribal persons in the state, Maharashtra has an
important role to play in tribal welfare. The Tribal sub-Plan (TSP) strategy is
central to the approach of planning for tribal welfare as a special component
of overall planning. The goal is to ensure progress of tribal communities and
to prevent diversion of funds meant for the progress of tribal communities.
The “Maharashtra model” of the Tribal sub-Plan is appreciated throughout
the country. It aims to allocate a percentage of Plan funds for tribal welfare in
proportion to the tribal population. It also provides for a focussed approach to
tribal development by concentrating on social sectors like health, education,
social justice, etc., and by making the Tribal Development Department
responsible for planning for tribal welfare.

The last two decades have thrown up a number of new challenges to

which the TSP needs to respond. There is a need for effective implementation
of progressive legislations like PESA, and the Scheduled Tribes and Other
Traditional Forest Dwellers (Recognition of Forest Rights) Act, 2006.
Convergence of the efforts of the ITDP structure with other structures at the
district level is also required. A Tribal sub-Plan Act which will prevent diversion
of TSP funds and ensure departmental commitments to tribal welfare is also the
need of the hour. I am glad to know that TISS in collaboration with UNICEF
has come out with a diagnostic study of the Tribal sub-Plan to suggest ways
in which the Tribal sub-Plan can be made responsive to the changing needs of
tribal communities. I am sure the report will be found useful by the planners and
other stakeholders. I wish the publication success.

(Ch Vidyasagar Rao)

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Message from the Chief of Office,

UNICEF Maharashtra
A substantial tribal population in Maharashtra is both a challenge as well as an opportunity
especially in terms of human development and particularly children’s development. The state
has reached a few milestones in terms of the MDGs but has a long way to go as regards certain
indicators with respect to children’s survival, development and protection. The situation of
children in tribal areas unsatisfactory as compared to those in non-tribal areas because of
various reasons.

This puts more responsibility on the Government and development agencies like UNICEF and
others to reach out to difficult areas and vulnerable tribal groups with services related to health,
nutrition, education, water and sanitation, livelihoods, basic infrastructure etc. to help these
population realize their right to a decent life as citizens of the country and also to participate in
social, economic and political development.

UNICEF had been working in quite a few states of India especially focusing on tribal and
scheduled caste population and advocating for better and adequate services for children and
women. In Maharashtra, UNICEF has been working on addressing equity issues in Nandurbar,
Thane, Chandrapur, Yavatmal since the last many years.

The purpose of supporting TISS to bring out this report is to generate the body of evidence
to advocate on policy level and institutional concerns in the planning, implementation
and monitoring of Tribal Sub Plan (TSP) programmes. The objective has been to analyse the
performance of the Tribal Development Department vis-à-vis the implementation of the Tribal
Sub-Plan which has a decent allocation every year and its linkages with other line departments
involved in delivery of crucial services like health, education, public works, water and sanitation.

I am quite hopeful that the Government of Maharashtra will consider this report with all sincerity
to ensure a better and sustainable future for the tribal population across the state.

Ms. Rajeshwari Chandrasekar

Chief of Office
UNICEF Maharashtra

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 Contents

Preface............................................................................................................................................................... xvii

Acknowledgements.......................................................................................................................................xix
Executive Summary and Recommendations.........................................................................................xx

Chapter 1: Introduction............................................................................................ 1
Background.................................................................................................................................................1
TSP/ITDP Areas..........................................................................................................................................2
Administration...........................................................................................................................................4
Planning and Monitoring Committees.............................................................................................7
Tribes Advisory Council (TAC)..............................................................................................................7
Cabinet Sub-Committee for Tribal Sub-Plan..................................................................................7
District Planning Committee................................................................................................................7
ITDP level Monitoring Committee......................................................................................................8

Chapter 2: Study Design.............................................................................................. 9

The Problem...............................................................................................................................................9
Specific Objectives of the Study....................................................................................................... 10
Sampling................................................................................................................................................... 11
Field Work................................................................................................................................................. 12
Tribal Atlas................................................................................................................................................ 14
Some Limitations of the Study......................................................................................................... 14

Chapter 3: Socioeconomic Profile....................................................................... 15

Scheduled Tribes and TSP Areas....................................................................................................... 15
What does the latest Maharashtra Human Development Report say?.............................. 16
Population Growth................................................................................................................................ 17
Population Characteristics................................................................................................................. 18
Educational Attainment...................................................................................................................... 19
Landholding and Occupation........................................................................................................... 21
MGNREGA Work..................................................................................................................................... 23
Consumption Expenditure................................................................................................................. 24
Household Characteristics................................................................................................................. 24
Health Factors......................................................................................................................................... 27
xii

Chapter 4: Budget Analysis..................................................................................... 31

Sukthankar Committee....................................................................................................................... 31
Lacunae observed by the Committee in Planning and Implementation of TSP............ 32
Recommendations of the Committee for the working of TSP.............................................. 32
GR on Implementation of SukthankarCommittee Recommendations.............................. 34
Dr. Jayant Patil Committee................................................................................................................. 34
Trend in TSP Outlay and Expenditure............................................................................................. 35
Trend in Sector-wise TSP Outlays..................................................................................................... 36
Sub-sector Outlays................................................................................................................................ 37
District-wise TSP / and OTSP Outlays.............................................................................................. 39
Re-appropriation of District TSP funds.......................................................................................... 39
Expenditure in the Four Selected ITDPs........................................................................................ 40
Nucleus Budget...................................................................................................................................... 40
Composition of District TSP............................................................................................................... 40
Depth and Diversity of the District Tribal sub-Plan................................................................... 42
Health ....................................................................................................................................................... 43
Nutrition .................................................................................................................................................. 44
Fisheries ................................................................................................................................................... 44
Rural Development............................................................................................................................... 45
Agriculture............................................................................................................................................... 45
Issues and suggestions........................................................................................................................ 45
TSP, PESA and Gram Sabha................................................................................................................. 47
Participation of people and officials............................................................................................... 49
Is the TSP responsive to ensuring delivery of Rights based interventions to the STs?.50

Chapter 5: Functional Assessment of TDD/ITDPs............................................. 63

Project Officers of ITDPs...................................................................................................................... 63
Roles and Responsibilities of Project Officer............................................................................... 64
Staff Position and Training of Officers............................................................................................ 64
Constraints of Manpower and Technical Competence in ITDPs........................................... 65
Programme Planning........................................................................................................................... 66
District Level Planning......................................................................................................................... 67
Flow of Funds.......................................................................................................................................... 69
The Problem of Centralisation of powers in the administrative and
financial structure of the Tribal Development Department.................................................. 71

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

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Selection of Beneficiaries.................................................................................................................... 71
IEC Activities............................................................................................................................................ 72
Monitoring and Evaluation................................................................................................................ 73
Involvement of NGOs........................................................................................................................... 75
Functioning of Ashram Schools....................................................................................................... 75
Some Observations made by the Study Teams.......................................................................... 77

Chapter 6: TSP and Administrative departments............................................ 81

Planning for Funds................................................................................................................................ 81
Flow of Funds to the Administrative departments................................................................... 83
Selection of Beneficiaries by Administrative departments.................................................... 84
Monitoring and Evaluation of/by Administrative departments........................................... 85
IEC Activities by Administrative departments............................................................................. 86
Issues and Suggestions....................................................................................................................... 86

Chapter 7: Community Perceptions...................................................................... 89

Verification of Sample Beneficiaries................................................................................................ 89
Perceptions of FGD Participants....................................................................................................... 89
Development Activities in Villages.................................................................................................. 91
People’s Experience in applying for TSP Schemes..................................................................... 91
Health Services....................................................................................................................................... 93
Selection of Beneficiaries.................................................................................................................... 93
Usefulness of Benefits.......................................................................................................................... 94
Migration for Livelihood..................................................................................................................... 95
Expectations of the Community...................................................................................................... 95

Chapter 8: Good Practices....................................................................................... 98

Sampurna Bamboo Kendra, Lawada, Dharni.............................................................................. 98
Study Tour to ITDP, Dharni.................................................................................................................. 99
Beneficiary Card, ITDP, Chandrapur................................................................................................ 99
Individual Farming, Chandrapur....................................................................................................100
Group Farming, Thane district........................................................................................................100
Individual Efforts, Jawhar..................................................................................................................102

Chapter 9: Conclusion............................................................................................ 103

references...................................................................................................................................................105

Acts and Government Resolutions (GRs)......................................................................................106

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 List of Tables and Appendicies
Table 2.1 A List of Districts, ITDPs, Blocks and Panchayats selected for Collecting field-level 11
data for TSP study.
Table 3.1 Trend in Number of Households and Population in Maharashtra during 1981-2011, 17
Total and Scheduled Tribes
Table 3.2 Selected Characteristics of Total and ST Population of Maharashtra in 2001 &2011, 18
and for India in 2011
Table 3.3a Literacy of Total and ST Populations in Maharashtra 2001 & 2011, and for India 2011 20
Table 3.3b Percentage of Children of Age 6-24 attending School/College by Sex and Age, 21
and Percentage of young people of age 15-24 years who had Education beyond
Standard 10, (NSS round 66,July 2009-June 2010)
Table 3.4a Cultivated Landholdings for Total and ST Households in Rural and Urban Areas by 22
Region as per NSS round 66 (July 2009-June 2010)
Table 3.4b Occupation of Total and ST Populations, Maharashtra 2001 &2011 and India 2011 23
Table 3.4c Percentage of Households that received NREG work, and Monthly Per capita 24
Consumer Expenditure of households of STs and All as per NSS round 66 (July 2009-
June 2010).
Table 3.5 Household Characteristics of Total and ST, Maharashtra, 2001 &2011 and India 2011 26
Table 3.6 DLHS-3 (2007-08) based Health Indicators for All and Scheduled Tribes, and DLHS-4 29
(2013) based Indicators for All
Table 4.1 Year-wise State Plan Outlay, Tribal Sub-Plan Outlay and Tribal Sub-Plan Expenditure, 36
Maharashtra, 1993-94 to 2013-14
Table 4.2 Year-wise Percentage Distribution of TSP Outlay for the State as a whole and TSP 38
Outlay for District Plan by significant sub sector, Maharashtra, 2009-10 to 2013-14
Table 4.3 Budget and Expenditure from TSP of Four Selected Districts during the year 2013-14 39
(figures in lakhs of rupees)
Table 4.4 Department-wise District TSP Plan Outlay for Nandurbar District for the last 3 years 41
Table 4.5 Nandurbar District TSP Plan Outlay of Tribal Development Department on items that 42
have Budget Allocations of more than Rs 10 crore for FY 2014-15
Table 4.6 Nandurbar District TSP Plan Outlay of Public Health Department on items that have 43
Budget Allocations of more than Rs 1 crore for FY 2014-15
Table 5.1 Vacant Posts in the TDD at all levels as of August 2013 (Source TDD) 65
Table 5.2 Core and Non-core areas for allocating funds in Tribal Sub-Plan 70
Table 5.3 Vital Statistics of Ashram Schools in Maharashtra 76

Appendix 4.2 Development Board-wise and District-wise break-up of District Plan Outlay (for 54
Sectors 1-8 combined) for TSP and OTSP Areas, 2013-14

Appendix 4.3 Sub-sector-wise Percentage Expenditure out of TSP State Plan, District Plan and Total 55
Outlay, Maharashtra, 2012-13

Appendix 4.4a Nucleus Budget, (2013-14) ITDP Taloda (Nandurbar District) 56

Appendix 4.4b Nucleus Budget, (2013-14) ITDP Dharni (Amravati District) 57

Appendix 4.4c Nucleus Budget 2013-14, Chandrapur District 58

Appendix 4.4d Nucleus Budget 2013-14, Jawhar ITDP (Thane District) 60

Appendix 4.5 Expenditure Shortfall in TSP from 1993-94 to 2010-11 as Calculated by Kelkar 62
Committee
 xv

Abbreviations

ANC Antenatal Care

ANM Auxiliary Nurse Midwife
APO Assistant Project Officer (ITDP)
ARO Associate Research Officer
ASHA Accredited Social Health Activist
ATC Additional Tribal Commissionerate
ATSP Additional Tribal Sub-Plan
BCG Bacillus Calmette-Guerin (vaccine)
BDO Block Development Office/Officer
BDS Budget Distribution System
CMW Currently Married Woman
CEO Chief Executive Officer
DPC District Planning Committee
DPDC District Planning and Development Council (also DPC)
DPT Diphtheria, Pertussis (whooping cough) and Tetanus (vaccine)
FGD Focus Group Discussion
GR Government Resolution
IDI In-depth Interview
IEC Information Education Communication
IFA Iron and Folic Acid (tablet)
ITDP Integrated Tribal Development Project
JSY Janani Suraksha Yojana
MADA Modified Area Development Approach
MIS Management Information System
MPCE Monthly Per-capita Consumer Expenditure
NFHS National Family Health Survey
NGO Non-Governmental Organization
MGNREGA Mahatma Gandhi National Rural Employment Guarantee Act
NREGS National Rural Employment Guarantee Scheme
NRHM National Rural Health Mission

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

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NSS National Sample Survey

NTFP Non-Timber Forest Products
OBC Other Backward Classes
OTSP Outside Tribal Sub Plan
PESA Panchayat Extension to the Scheduled Areas Act
PHC Primary Health Centre
PLIC Project Level Implementation Committee
PO Project Officer (ITDP)
PTG Primitive Tribal Groups
PVTG Particularly Vulnerable Tribal Groups (also PTG)
PWD Public Works Department
RCH Reproductive and Child Health
SBK Sampoorna Bamboo Kendra
SC Scheduled Caste
SHG Self-Help Group
ST Scheduled Tribe
TAC Tribal Advisory Council
TDC Tribal Development Commissionerate
TDD Tribal Development Department
TISS Tata Institute of Social Sciences
TRTI Tribal Research and Training Institute
TSP Tribal Sub-Plan
TT Tetanus Toxoid (injection)
UC Utilization Certificate
UNICEF United Nations Children’s Fund
YASHADA Yashwantrao Chavan Academy of Development Administration

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 Preface
Review of the reports of various committees, working groups and studies on the status of
tribal communities in Maharashtra show that, on the basis of socio-economic, housing and
health indicators, there are present wide gaps between the attainments of Scheduled Tribes
and the general population. This, in spite of the Tribal Sub-Plan (TSP) strategy, which was
initiated during the Fifth Five-Year Plan exclusively for the socio-economic amelioration of the
tribal communities. Under the TSP, the Tribal Development Department (TDD) and a number
of administrative departments of the State government receive funds for the socioeconomic
development of the tribal communities.

In order to understand the functioning and programs of the Tribal Development Department
and the administrative departments that receive funds under TSP, the Tata Institute of
Social Sciences (TISS) undertook a Diagnostic Study of the Working of the Tribal Sub-Plan in
Maharashtra, at the instance of the Governor’s office, and with funding provided by the UNICEF.

The study involves analysis of TSP formulation, planning and flow of funds, and the
implementation process. In addition, monitoring and evaluation processes of TSP schemes and
programmes in Maharashtra were also studied. Discussions were held with officials of the Tribal
Development Department from the Integrated Tribal Development Projects (ITDPs) selected
for the study and administrative departments at the district and block levels. Also included in
the study are discussions with local/community leaders and Focus Group Discussions (FGDs)
with Scheduled Tribes (STs) in selected villages. The tools used for the study were checklists,
discussion points, FGD guidelines and formats for obtaining budget and performance statistics.

This report provides insights into the functioning of the programs and schemes of the Tribal
Development Department, and administrative departments with respect to TSP in Maharashtra
from the perspectives of functionaries of Tribal Development Department, administrative
departments at district level and the tribal community. We hope that the report provides a
valuable source of information not only to the Government, but also to NGOs, social workers
and the research community in general.

Tata Institute of Social Sciences

Deonar, Mumbai.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

xviii

Acknowledgements
On behalf of the Tata Institute of Social Sciences (TISS), Mumbai, the Principal Investigators of
the study are grateful to Mr. Vikas Chandra Rastogi, Secretary to the Governor of Maharashtra,
Mr. Parimal Singh, Deputy Secretary to the Governor, Mrs. Rajeshwari Chandrasekhar, Head of
the UNICEF Field Office and Ms. Anuradha Nair, Policy Planning Evaluation (PPE) Specialist at
UNICEF, Mumbai, for entrusting the study to TISS, and funding and resource support. Our special
thanks to Mr. Parimal Singh and Ms. Anuradha Nair with whom the study team had many rounds
of discussions during the preparation of this report.

We thank Mr. Mukesh Khullar, erstwhile Principal Secretary, Tribal Development Department,
Government of Maharashtra, for approving the study and his cooperation. We also thank
Shri. Rajgopal Devara, the present Secretary of TDD, for his support. We thank the district and
block level officials, the District Collectors, CEOs of Zilla Parishads and officers of the various
administrative departments and Project Officers of ITDPs as well as their colleagues and
subordinates who willingly shared their experiences and provided us information about their
TSP activities.

At the community level, the study team interacted with Gram Panchayat functionaries, village
leaders and men and women in the villages and conducted in-depth interviews and Focussed
Group Discussions. The community people and representatives participated actively and shared
considerable information and also voiced their concerns. We thank all of them.

At TISS, the research team worked tirelessly and efficiently to collect qualitative and quantitative
information, compilation and putting them together in this report. We sincerely thank them all.

Tata Institute of Social Sciences

Mumbai

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

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Executive Summary and Recommendations

The Scheduled Tribes are one of the most marginalised communities in India. As a
consequence of historical injustices, displacement due to development projects, deprivation
of land assets through fraud and exploitation of their already distressed situation, and
denial of access to natural resources they suffer from a severe development deficit vis-à-vis
other communities.

Data from Census and other Surveys show a wide gap between the development indicators of STs
vis-à-vis the general population. The gaps are substantial, and their persistence is a serious social
and ethical problem. A comparison of data of the decade long period between 2001 and 2011
show that, in fact, that with respect to many of the indicators, the gaps are widening.

Present TSP strategy in Maharashtra is largely based on the recommendations of the Sukthankar and
the Jayant Patil Committees. A positive aspect of the TSP in Maharashtra is that separate allocations
are made at the beginning of the Planning exercise and is controlled by the TDD. Therefore, there is
little possibility of diversion of the budget for non-TSP purposes. However, there is real concern over
the lack of ownership of the various schemes under the TSP.

State Governments and the concerned Ministries allocate funds for TSP in proportion to
the tribal population. However, in view of the extent of the deprivation suffered by the STs,
we recommend that TSP allocation policies must move away from a population-share to a
‘problem-share’ approach. However, even on the basis of ‘population-share’, it was estimated by
the Kelkar Committee that, “since 1994, the tribal people have been deprived of Rs.7607 crore of
their legitimate share of the budget.” We recommend that this diversion should be made good
through additional TSP provisions over the next four to five financial years. The TSP budgets
must be non-divertible and non-lapsable; they must be insulated from budgetary cuts. This can
be done only through legislation as has been done in Andhra Pradesh through the APSCSP and
TSP Act, 2013.

We also found in our study that, despite clearly laid out directives, budgetary commitments
to many important sectors such as nutrition, health, fisheries, agriculture, and rights-based
interventions leave much to be desired. Sector-wise TSP interventions lack in depth and
diversity, and do not respond to the specific needs and challenges faced by STs. In fact, at times,
we suspect that there is a tendency for TSP to be used as an alternative to the general budget as
a source of funds. There is a clear need for departments to “own” TSP and for inter-departmental
convergence.

The study also found that, despite the clear mandate of a progressive Act like PESA, its intent and
objectives are not reflected in the TSP. The TSP does not provide for participation of the Gram
xx

Sabha and the various tiers of Panchayati Raj in the Planning process. The manner in which the
schemes are implemented, process of selection of beneficiaries, and the lack of participative
micro-planning amount to violation of the mandate of PESA.

There is, similarly, a need for TSP to be responsive and provide support to rights-based
interventions such as MGNREGA, Forest Rights Act, and Right to Food, etc.

As far as the implementation of schemes and the The Planning Department and the
ITDP structure are concerned, the structure is severely Finance Department have no role
constrained by limited manpower, a multiplicity of in the planning of TSP except for
delivery mechanisms for similar schemes, lack of allocation/release of funds as per
norms. The entire planning and
delegation of powers, excessive centralization of
implementation of TSP remains
decision making of Commissionerate and ATC level,
with the Tribal Development
and issues of administrative control over, as well as
Department. However, there is a
convergence with, the line departments. There exists clear need for creating platforms
a disconnect of districts officials and PO-ITDP from the of interaction, consultation, and
planning process. convergence between the Tribal
Development Department and
The constraints of manpower and lack of technical the state or district administrative
competence led to problems in selection of beneficiaries, departments in the planning
implementation bottlenecks, and lack of effective and/or implementation of TSP
monitoring. To address the situation, we recommend that schemes.

a number of subjects and/or schemes must be transferred

to the Zilla Parishads, Panchayat Samitis and Gram
Panchayats with more authority given to the Panchayat Samitis and Gram Panchayats in PESA areas
for better Planning, Implementation and Monitoring. This will ensure more effective outreach, public
accountability and also allow a certain degree of social audit to be built into its structures.

We also recommend budgetary reforms in TSP planning. The rigid ceilings and floors that
characterise district TSP are counter-productive and do not take into consideration the diverse
needs of districts. Hence, a core and non-core area distinction should suffice.

The lack of District Codes for each district also needs to be addressed. This is closely related to –
and leads to – lack of effective powers of re-appropriation at the district level and causes delays
in expenditure.

Centralisation of powers in the administrative and financial structure of the TDD leads to poor
response-time and also restricts the capacity of institutions to become vibrant and accountable.
There is a need to avoid this tendency and, therefore delegation of powers is one of the most
important changes needed in the TDD structure.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 xxi

The process of selection of beneficiaries for most of the schemes is, at present, arbitrary and
non-transparent. There is a need to bring beneficiary selection in line with PESA’s mandate and
involve Gram Sabhas of hamlets as units of selection.

The need to use IEC/BCC as tools for disseminating information about the schemes and also for
tribal welfare cannot be overemphasized. Budgetary Support for IEC is a must.

We also envision a principal role for the Collectors the Except for an occasional review by
district head for co-ordinating and bringing about the District Collector and CEO of
convergence in TSP efforts. He/ she must be made the the Zilla Parishad, the monitoring
final authority and most files and sanctions should not of activities is restricted to the
respective departments. The TDD
go beyond him/ her.
is not involved in the monitoring
Monitoring, reviewing and MIS structures need to be and review of TSP activities of the
administrative departments. There
strengthened. The use of ICT to ensure transparency
is no proper reporting system for
and ease of functioning is absolutely necessary.
the performance of administrative
departments related to TSP except
Though the Maharashtra model of allocating TSP
the financial statements that are
budget in proportion to the tribal population has been
forwarded to the ITDPs.
generally lauded as a good system, it is also necessary
to acknowledge that there are issues concerning
the ownership of TSP budgets by the departments.
Considering the fact that, for many departments, the TSP budget will be less than 9% of their total
budget (the money coming from various sources), they may not be paying as much attention
to it as they do to the general budget component. At the same time, the TDD does not have
the technical expertise, manpower, and time to understand the nitty-gritty of the processes
in the other departments. As far as we could see, there are very few institutional mechanisms
to ensure convergence of approach. Therefore, we recommend that there should be regular
interactions among departments.

The field teams observed a number of development activities in all the sample villages and their
utilization by tribal communities. A few cases (listed in registers) were taken up for verification
and found to be genuine. However, it was also noticed that some beneficiaries either sold the
benefits (which were received as assets/equipment) or did not properly use or maintain them.
Common assets such as link roads, street lights and drinking water supply existed but the
quality was poor. As a result they were unutilized or underutilized. The number of individuals
and families applying for benefits has increased in the recent years due to growing awareness.
However, many applicants were not aware of the outcome of their applications as the feedback
was not properly structured. This shortcoming was strongly voiced by the women participants
and those living in remote areas.

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xxii

Recommendations

TSP is a landmark programme designed to fulfil the constitutional obligation of the State to
improve the condition of the tribal people. However, to make it more responsive to the needs
of the STs, and to streamline the administration of schemes outlined in the TSP we have made
a number of recommendations in various places of this report. These are summarised below:

1. Compensation for the diversion of TSP budget due to low absorption and expenditure:
Since almost Rs. 7000 crores has been ‘denied’ to the STs over the last two decades because
of less than proportionate expenditure, the loss may be made good by additional provisions
in TSP over and above the normal allocations in next five Financial Years.

2. Removal of rigid Ceilings and floors: Ensure that ceiling and floors identified at the
district TSP are removed and only the core/non-core distinction remains. This is necessary
to give adequate flexibility to the district planning units to address specific needs of the
districts.

3. Moving from “population share” to a “problem-share” approach: Since, the gap

between the social indicators for STs is not only large, but also increasing vis-à-vis the non-
STs, there is an urgent need for a larger share of the budget pie to be shared with the STs.
Hence, a weighted average of allocation based on the grading of the extent of deviations
is necessary for the budgeting exercise to be effective.

4. ST budgeting Act: Presently, the allocations in the TSP budget are not based on any legal
compulsion. Thus if, in the future, TSP budget allocation is less than the proportion of STs
in the population, it is likely to go unchallenged. Hence, there is a need for a Tribal Sub-
Plan legislation on the lines of the one recently introduced in undivided Andhra Pradesh.
Such an Act can define the minimum percentage of allocation; provide safeguards against
diversion and lapsing of funds, maintenance of book of accounts, the minimum percentage
of devolution, etc. Also, as it will be treated as a special budget to address serious economic
and social issues of tribal communities, across-the-board budgetary cuts should not be
made applicable to the TSP.

5. Increasing the depth and diversity of the TSP and a shift to outcomes- based Planning:
It was seen that, for many interventions in TSP, the extent of interventions is either not
enough, or the interventions are multi-faceted. Many TSP schemes, in fact, displace the
general plan. Hence, we recommend that a consultative process supported by a core
independent research agency/body needs to be put in place immediately to take a fresh
look at the schemes and determine whether they address the various gaps that they were
meant to address. Schemes need to be objectively measured by the TDD and the parent

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 xxiii

department so those not in consonances with the objectives are removed. Such schemes
may be funded, instead, by the general plan. A number of new schemes in areas which
impact ST welfare, for example, health, nutrition, agriculture, tribal development, forest
rights, PESA, minor irrigation, etc. need to be considered after reviewing the current /
existing schemes to avoid duplication and multiplicity of efforts.

6. Micro-Planning and stakeholder participation in planning: Despite the recognition

that the STs have a community way of life and their unique customs and traditions must be
preserved, they have not been made partners in the efforts to understand their vision of
development. There is a need to link the planning process to micro-planning involving all
stakeholders. The micro-planning exercise should be an annual one and be supported by
both budgetary provisions and human resources. Alternatively, there can be a perspective
planning exercise from which annual plans are derived and reviewed at the end of the year
following which priorities can be adjusted to address areas of concern.

7. Assessing the baseline situation of tribal families and TSP areas and planning for
their overall development: This must be done with the participation of the people.
Presently, most of tribal people are poorly equipped to take advantage of emerging
livelihood opportunities. Land and natural resource-based livelihoods are on the decline
and tribal people must be suitably equipped work in emerging sectors. Therefore, a
baseline assessment could be followed by a strategic vision for the holistic development
of tribal people to improve their productivity, and the sustainability of land and natural
resources available to them. The exercise will also identify areas, including Non-Timber
Forest Products (NTFPs) – especially in the light of FRA – where they are in a better position
to acquire new skills and opportunities. (It is learnt that presently, a baseline survey is
under consideration by the Department).

8. Improving the beneficiary selection process: ITDPs should digitize the existing as well as
new data and create a database of beneficiaries, including the beneficiaries of schemes run
by the Line Departments. Beneficiary selection should be done by the Gram Sabhas and not
by the easy to manipulate “first-come, first-served basis”. Also, an online tracking system can
be set up at each ITDP project office for keeping a record of applications received, action
taken (with justification) and the number of days taken to dispose of the case.

9. PESA and TSP: The mandate of PESA involves ownership of the TSP by the Panchayati
Raj system. Therefore, it is imperative to transfer the subjects laid down in the Eleventh
Schedule to the Panchayati Raj system in Scheduled Areas. Secondly, the Gram Sabhas and
the Panchayati structure must be involved in proposing the micro-plans that will finally
constitute the TSP. To the extent possible, and allowing for a limited number of exceptions,

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

xxiv

the schemes should be run by the Panchayati Raj system. Beneficiary selection should be
done by the Gram Sabhas and certification of utilisation of funds must be obtained by the
Panchayats from the Gram Sabhas.

10. Involving Panchayati Raj system: Ensure transfer of most schemes to the Panchayati
Raj system. This would have the advantages of (a) ensuring manpower and political
accountability for schemes, (b) satisfying the provisions of PESA and (c) ensuring a clear
chain of command. Planning for TSP should involve Panchayati Raj (including the Gram
Sabha). Micro-planning and identification of needs by the stakeholders themselves should
be the norm for budgeting.

11. Delegation of powers: There is a need to ensure administrative and financial delegation
at various levels. Most of the administrative sanctions should not go beyond the district
collectors. Financial limits at all level need to be increased substantially.

12. Time-bound Recruitment and Human Resource Policy: As many posts are vacant at all
levels, it is necessary to fill the posts at all levels by a time-bound recruitment of personnel
in the Tribal Development Department. A Human Resource Policy with sufficient incentives
(and disincentives for truancy and non-performance) needs to be put in place. The powers
of recruitment for most posts may rest with the District Selection Board headed by the
District Collector as is presently the case for posts in RDD, Revenue, etc. The recruitment
process for TDD at the district level can also be managed by this committee. This will ensure
faster recruitments and fewer vacancies.

13. Providing for a District/ Project level Planning Unit: Planning Management Units (PMUs)
with adequate planning and IT skills must provide back-end support to the Planning
process by monitoring schemes and managing the MIS. Planning should be outcome
oriented and programmes given a reasonable time frame (not too short) for completion.

14. Skills Building and Motivation: TSP staffs at various levels require suitable skills and
motivation for working with tribal people to plan, implement, monitor and evaluate
schemes and programmes as well as bringing about better convergence. TSP staff must
be made an integral part of the situation assessment and planning processes. Budgetary
support is inbuilt in the TSP for this intervention. Housing for staff in remote areas is also an
intervention which must be supported with adequate financial provisioning.

15. Provision of Administrative Infrastructure: For effective planning and implementation

of schemes, TDD officials must receive adequate resource support like telephone,
computer and internet facilities, and vehicles (if necessary, four wheel drive vehicles to
reach inaccessible tribal and hilly areas for field visits). Adequate provisioning must be
made for such requirements.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 xxv

16. Prioritization of Schemes and Streamlining Functioning: Some schemes are run by
more than one department under different names. They must be merged and run by a
single department, which has the requisite specialization to operate the scheme to ensure
better performance and impact.

17. Periodic Evaluation of Schemes: Schemes meant to deliver benefits to individuals should
focus on employment generation and alternative job opportunities. There are many
schemes, which are being implemented for many years that are of not much relevance
today. Further, though allocation, release and utilization of TSP funds are made as per
norms, it is not known to what extent the funds have reached the needy. These concerns
call for a periodic evaluation and review of schemes, and their impact on the community.
Ideally, the Gram Panchayat/Gram Sabha supported by a third party should be mandated
with this task. Based on feedback, existing schemes and/ or strategies can be modified
or new ones developed. There should also be a system of monthly progress reports from
the implementing departments/institutions, which must be shared with Gram Panchayats
and, through them, the Gram Sabhas.

18. Establishing an Online Monitoring System: There must be a strong MIS team at the
State/Commissionerate level, as also at district/PO levels. This will help in close monitoring
of the schemes as well as their outcomes. This needs also to be considered in the light
of the fact that most departments do not publish their own tribal budget outcome data.
Hence, the MIS cell at the state can be useful in collating data from the state data bank.
This data can provide useful insights for framing appropriate TSP strategy.

19. Submission of an Annual Report: An annual report on the ‘Situation of Tribal People
in Maharashtra’, which will review achievements and also identify steps to overcome
deficiencies, maybe prepared and submitted to the State Governor and made public.

20. Plan and non-plan division: The non-plan expenditure must either have a tribal
component the Plan/Non-Plan distinction must be completely done away with. There is an
urgent need to provide for adequate administrative costs in the scheme design and also
for recurrent and maintenance expenditure.

21. Role of Collector: The role of the Collector needs to be defined clearly. He is the head of
the district and the Secretary of the DPC. He can play a leading role in inter-departmental
coordination. Hence, he must be vested with the powers of supervision, monitoring, and
other administrative powers (CR writing, minor or major punishments, rewards, recognition
and incentives, etc.) to help streamline the system and make it more responsive.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 Chapter 1
Introduction

Background
India’s Scheduled Tribes (STs) are one of the most disadvantaged sections of society due to their
isolation and socioeconomic backwardness. According to the census of 2011, the Scheduled
Tribe population in India was 104.5 million, accounting for 8.63 percent of the total population
of the country. The tribal population in Maharashtra in 2011 was 10.5 million, which constitutes
9.35 percent of the total population of the state. Maharashtra has the second largest tribal
population in the country, next only to Madhya Pradesh, accounting for 10 percent of the total
ST population of India.

The Fifth schedule of the There are as many as 47 tribes or tribal groups in
Constitution lays down certain Maharashtra. Some of the major tribal groups are the
roles and responsibilities for the Bhils, Gonds, the Mahadeo-Kolis, Pawras, Thakurs, and
Governor of a State. Presently, the Warlis. There are also three particularly vulnerable
there are ten States which have
(or primitive) tribal groups: Katkari (Kathodi), Maria
Scheduled Areas. The Governor
Gond and Kolam. The tribal groups differ in numerical
has the power to apply or not
strength, settlement history, geographic ___location
apply existing laws of the State,
or to apply them with certain and means of livelihood, access to natural resources,
modifications. He also has the language, culture, human development, political
power to issue regulations after empowerment and developmental aspirations.
consultation with the Tribes Further, each tribe or tribal group is an endogamous
Advisory council, and with the group, whose interaction with other tribal groups and
approval of the President.
the general population is limited.

Recognizing their isolation and backwardness, and

the need for State support, soon after India’s independence, provision was made in the Fifth
Schedule of the Constitution of India for the administration and control of Scheduled areas and
Scheduled Tribes. The Fifth Schedule areas in Maharashtra cover parts of Thane, Nashik, Dhule,
Ahmednagar, Pune, Nanded, Amravati, Yavatmal, Gadchiroli and Chandrapur districts. There are
several constitutional safeguards for the protection, welfare and development of the Scheduled
Tribes of India. The protective measures include equal rights and opportunities, protection
against discrimination on grounds of caste, religion, race, sex, etc., reservation in appointments
and in Lok Sabha and Legislative Assembly seats; protection against social injustice and all forms
of exploitation, etc. The welfare and development measures include educational and economic
opportunities, subsidised housing, various agricultural programmes, financial assistance, etc.
These are implemented through the Tribal Sub-Plan (TSP) strategy.
2

During the first four Five-Year Plans, the strategy followed for the development of STs was
improving their socio-economic status by providing them with educational and economic
opportunities. Implementation of the strategy was through the Backward Classes Welfare
programmes. After 25 years of independence and by the end of the fourth Five-Year Plan
(which included three annual plans), it was found that the Scheduled Tribes continued to lag
in the mainstream development processes. Further, it was realized that the ‘Plan’ schemes and
programmes designed for the overall development of the economy barely reached the STs. In
order to overcome this shortcoming, the Tribal Sub-Plan (TSP) was initiated during the Fifth
Five-Year Plan (1974-79) was developed exclusively for the socioeconomic amelioration of the
tribal communities.

The Tribal Sub-Plan (TSP) strategy stipulated that the TSP funds of the State and the Centre must
be quantified on the basis of the proportion of the Scheduled Tribe population of the States as
to ensure targeted utilization of the funds for the welfare and development of Scheduled Tribes
and their accountability. As per the guidelines issued by the Planning Commission to all State
Government/UTs in 2005 (Planning Commission, 2005; also quoted in SEEDS 2005, pp I: 12-13),
the TSP funds are to be placed under a separate budget head/sub-heads for each development
department, along with provisions to ensure that these funds are not diverted and do not lapse,
with the clear objective of bridging the gap in socio-economic development within a period of
ten years.

The Tribal Sub-Plan Programmes are financed by the following sources: (i) Tribal Sub-Plan
funds from State/UT Plans and Central Ministries/Departments, (ii) Special Central Assistance
to Tribal Sub-Plan, (iii) Grants under Article 275(1) of the Constitution to the States/UTs, (iv)
Funds through Central Sector Schemes, (v) Funds from Centrally Sponsored Schemes and (vi)
Institutional Finance (Quoted in SEEDS 2005, P I-5).

TSP/ITDP Areas

For implementing the TSP strategy, Integrated Tribal Development Projects (ITDPs) were clearly
delineated in the areas with a high concentration of tribal people. Over the years, changes
were made in the modalities to make the approach more effective and beneficial to the tribal
communities. To start with, TSP areas were demarcated as areas of tribal communities having a
population of 50,000 or more with at least 50 percent of them belonging to tribal communities.
Subsequently, villages where the tribal population was only marginally less than 50 percent
were also constituted into Additional Tribal Sub-Plan (ATSP) blocks/areas. These TSP and ATSP
areas were made part of what is now called Integrated Tribal Development Projects (ITDPs).

In the Sixth Five-Year Plan (1980-85), in addition to the ITDPs, a Modified Area Development
Approach (MADA) was adopted to cover smaller areas of tribal communities outside TSP
areas and having a population of 10,000 or more of which at least 50 percent was tribal. In

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 3

Map 1: Tribal Areas in Maharashtra

the Seventh Five-Year Plan (1985-90) clusters having a total population of 5000 or more with
a tribal population of at least 50 percent were included and termed as Mini-MADA Clusters.
Later, the concept of Primitive Tribal Groups (PTGs), now called Particularly Vulnerable Tribal
Groups (PVTGs) was included in the strategy. The ITDPs thus include all the four categories of
areas namely TSP, ATSP, MADA and Mini-MADA areas. Map 1 given below locates these areas in
Maharashtra.

The tribal population of Maharashtra is concentrated in the western hilly districts of

Thane, Nashik, Dhule, Nandurbar and Jalgaon (Sahyadri region) and the eastern forest
districts of Amravati, Nagpur, Bhandara, Gondia, Chandrapur, Gadchiroli and Yavatmal
(Gondwana region). Closer look at the ___location of the tribal population-concentrated
districts (see map below) shows that these districts border the neighbouring states of
Gujarat, Madhya Pradesh, Chhattisgarh and Telangana. As at present, there are 29 ITDPs,
43 MADA pockets and 24 mini- MADA/clusters. TSP areas fall in 15 of the 35 districts
of Maharashtra. TSP districts are: Thane, Raigarh, Nashik, Dhule, Nandurbar, Jalgaon,
Ahmednagar, Pune, Amravati, Yavatmal, Nagpur, Gondiya, Chandrapur, Gadchiroli and
Nanded.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

4

23 talukas are fully covered by the TSP and another 60 are partially covered (36 under TSP and24 by
ATSP). The ITDPs cover 30 towns, 8428 villages, and include 5905 TSP villages, 1272 ATSP villages, 888
MADA villages and 363 mini-MADA villages.(TDD, 2013 & http://mahatribal.gov.in/). The Panchayat
(Extension to Scheduled Areas) Act, 1996 (PESA), which facilitates self-governance and community
control over local natural resources is applicable to the Scheduled Areas. Scheduled Areas span 13
districts and 59 Talukas, and cover 2895 villages. Almost 45 to 50 % of the ST population live in the
Scheduled Areas. It is pertinent to note here that, whereas 83 talukas (including fully and partially
covered ones) are included in TSP areas, only 59 talukas are part of Scheduled Areas.

Map 2: TSP Districts

Madhya Pradesh
Nandurbar

Gondiya
Bhand
Amravati Nagpur
Dhule
Jalgaon

ara
W
ar
dh
Gujarat a

Chhattisgarh
Akola
Buldana

Nashik shim
ad

Wa Yavatmal Chandrapur
ab

Gadchiroli
ng
ra
Au

Hi
ng
Thane Jalna ol
i

Ahmadnagar
Pa

Mumbai
rbh

Suburban Andhra
an

Mumbai Bid
Nanded Pradesh
i

Pune
Raiga

Latur
rh

Os
ma
na
ba ST Population (in %)
d
Solapur 0.0 - 4.9
Satara 5.0 - 9.9
10.0 - 14.9
Ratn

Karnataka
15.0 - 24.9
agiri

Sangli 25.0 - 49.9

50.0 - 74.9

TSP Disctrict
!
Kolha
Sin

pur
dh
ud
urg

0 45 85 105
Kilometers

Administration
Until 1973, the Tribal Welfare Development Unit was one of the sub-units of the Social
Welfare Department. In 1973, a separate Tribal Welfare Directorate was created with Pune as
its headquarters. In 1985, a separate Tribal Ministry was formed and the Tribal Development
Department (TDD) was reorganized in 1992 (Tribhuwan, 2006).The main functions of the
TDD are State Level co-ordination and monitoring of the Tribal Sub-Plan, and supervision of
the implementation of various schemes through Integrated Tribal Development Projects. The
organisational structure of the Tribal Development Department is given below.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 5

Minister
Tribal Development Department

Minister of State
Tribal Development Department

Secretary
Tribal Development Department

Commissioner, Maharashtra State

Tribal Development Cooperative Tribal Tribal Research
Department, Nashik Development and Training
Corporation, Institute, Pune
Nashik

Addl Commissioners (4),

Tribal Development Shabari Adivasi
Department, Nashik, Scheduled Tribes
Finance and
Thane, Amravati and Caste Certificate
Development
Nagpur Scrutiny
Coporation,
Committee (8)
Nashik

Project Officers (29),

Integrated Tribal
Development Project Source: Annual Tribal Sub Plan 2013–14, TDD, p.2

The Tribal Development Commissionerate at Nashik is responsible for the implementation

of the TSP. Commissionerate has four Additional Tribal Commissionerates under it: Thane,
Nashik, Amravati and Nagpur. There are 29 ITDPs in Maharashtra and they are under the direct
administrative control of the four additional Commissionerates (see map 3). Each ITDP is headed
by a Project Officer (PO) and he/she is assisted by 2 Assistant Project Officers, one Planning Officer,
one Documentation Officer, a core of Junior Education Officers (Inspectors) and administrative
staff. In districts with more than one ITDP, one of the POs is designated as the nodal PO whose
responsibility is to interact with the administrative departments and participate in District Planning
meetings and related exercises.

The objective of the ITDP is to integrate various plan schemes and services at the block/taluka
level. However, in Maharashtra, the PO of ITDP does not have the powers of supervision and
administrative control over the block level machinery of the administrative departments.
Therefore, there remained a gap in the proper integration of services including supervision
and ensuring accountability at project level. In order to strengthen the administration,

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

6

Map 3: TDC, ATC & ITDP Locations

Madhya Pradesh
Nandurbar

Gondiya
Bhand
Amravati Nagpur
Dhule
Jalgaon W

ara
ar
dh

Chhattisgarh
Akola a

a
Buldan
m
Nashik shi

ad
Wa Yavatmal Chandrapur

ab

Gadchiroli
ng
ra
Au
Hi
ng
Thane Jalna ol
i
Ahmadnagar

Pa
Mumbai

rbh
Suburban
Bid
Andhra

an
Mumbai Pradesh

i
Nanded
Pune
Raiga

Latur
rh

Os
m
an
ab
ad
Solapur
Satara
Ratn

Karnataka
Tribal Development Commissionerate
agiri

Sangli

Additional Tribal Commissionerate (4)

Kolh

Project Officers (29)

Sin

apur
dh
ud
ur
g

the TDD issued a Government Resolution (GR) on November 9, 1993 to post an Indian
Administrative Service, Indian Forest Service or a Maharashtra Revenue Service officer as
Project Officer in 11 sensitive ITDPs with the powers of Additional Collector and Executive
Officer of Zilla Parishad.

Further, as the tribal people had to approach several agencies for redressal of their grievances
regarding development and regulatory matters, the state government introduced a straight-
line administrative hierarchy in the 11 ITDPs by bringing all the officers and staff working in
these areas, irrespective of their departments, under the administrative control of the Project
Officer. However, in many ITDPs, officers of required seniority were not available, with the result
that planning and coordination, including effective service delivery to the tribal community,
could not be ensured (TDD, 2013, p. 2-3).

The prime activity of the ITDP is running the Ashram schools. The other schemes implemented
directly by the ITDPs are conducting/arranging training programmes for the tribal people,
supply of electric pumps and diesel pumps, implementation of Thakkar Bappa schemes (tribal
village integrated improvement programme) and Nucleus Budget schemes (according to local
variations and needs, which cannot be met from the regular schemes).

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 7

The education and training activities of ITDPs include running of Government Ashram Schools,
Junior Colleges (attached to Government Ashram Schools), Education in aided Ashram Schools,
and Government Hostels for Tribal Students. ITDPs also provide for maintenance allowances
for Scheduled Tribe students studying professional courses and living in hostels, implementing
schemes for pre-metric scholarships for state tribal students, establishment of Model schools for
Scheduled Tribe students, Eklavya Model English Medium Residential Schools, Cash awards for
meritorious students of Standards 10 and 12, Cash awards to Ashram Schools, Computer training
for students and teachers of Government Ashram Schools, in-service training programmes, training
tribal students for military and police jobs, motor vehicle driving training centres for Scheduled
Tribes, etc.(TDD, 2013, p.33-37).

Planning and Monitoring Committees

For effective planning, implementation and monitoring of the TSP, there are committees at the
state, district and ITDP levels.

Tribes Advisory Council (TAC)

The Chief Minister and Minister for Tribal Development are the ex-officio Chairperson and Vice-
Chairperson respectively of the Tribes Advisory Council. The main function of the TAC is to advise
the Governor of the state on important matters concerning tribal development, and to decide
on policy matters pertaining to the Tribal Development Department.

Cabinet Sub-Committee for Tribal Sub-Plan

At the State Level, there is a Cabinet Sub-Committee for the Tribal Sub-Plan, which is headed
by the Minister for Tribal Development. The Principal Secretary, TDD, is the secretary of the
sub-committee. The sub-committee is required to approve the Tribal Sub-Plan, supervise its
implementation and monitoring, and review all aspects for its speedy implementation.

District Planning Committee

Earlier, there was a District Planning and Development Council (DPDC) constituted in every
district to plan for various schemes at the district level. Following Articles 243ZD of the 74th
Amendment of the Constitution, the Maharashtra District Planning Committee (Constitution &
Functions) Act 1998 (called DPC) was constituted to consolidate the plans prepared by various
administrative departments including Panchayats and Municipalities in the district, and also to
prepare a draft development plan for the district as a whole. This Act came into force from March
15, 1999.The Minister-in-charge of the district (called Guardian Minister) is the ex-officio chairman
of the District Planning Committee, the District Collector is its ex-officio member-secretary,
and the President of the Zilla Parishad an ex-officio member. The government also nominates

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

8

some ministers from the district, members of Statutory Development Boards, members of State
Legislature, members of Parliament and persons having knowledge of District Planning. Special
invitees include the concerned Divisional Commissioner, Chief  Executive Officer of the  Zilla
Parishad, the Officer on Special duty (Planning) from the Office of the Divisional Commissioner,
the District Planning Officer and Executive Chairman or member, State Planning Board.

It must be noted that there is no separate committee at the district level for TSP planning.
Therefore, planning for the TSP budget is carried out as a part of the planning under DPC. For this
purpose, the nodal Project Officer of the ITDP participates in DPC meetings. The Administrative
departments submit proposals to the nodal PO, ITDP, who consolidates the proposals and
places them before the District Planning Committee. The DPC, after approving the TSP plan for
the district, forwards it to the Tribal Development Department for further consideration.

ITDP level Monitoring Committee

For effective implementation of the schemes in tribal areas and continual monitoring and review,
the state government has constituted project-level implementing committees (PLIC) with a tribal
Member of the Legislative Assembly as the chairperson, Additional Tribal Commissioner as the vice-
chairman, the tribal Member of Parliament from the area as a special invitee and chair persons of
the Social Welfare Committee, Women and Child Welfare Committee and respective Zilla Parishad
as invitees. The function of the committee is to review the progress of the schemes included in the
Five-Year Plans and the TSP. This committee is also involved in the planning process of the project-
level plans. Through this committee, the involvement of tribal peoples’ representatives is ensured
at both formulations of TSP and implementation stages (TDD, 2014, pp. 8-9).

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 Chapter 2
Study Design

The Problem
It is seen from the review reports of various committees, working groups and research studies
on the status of tribal communities that wide gaps exist between the Scheduled Tribes and
the General Population on the basis of various socioeconomic indicators such as literacy,
school enrolment, educational attainment, per capita income, employment opportunities,
health indicators, access to basic amenities like drinking water, housing, drainage facility
and electricity, and assets possessed (SEEDS, 2007). Several reports have also acknowledged
the tardy implementation of the TSPs by the States/UTs and Central Ministries/Departments,
lacunae in policy implementation, gaps in the allocation and utilization of funds as well as
structural inadequacies at national, state, district, block and village levels.

The reports also stressed the need for periodical status reviews and evaluation of the impact of the
schemes/programmes. For example, a study conducted by UNICEF on a situational gap analysis
in Nandurbar district in 2009 noted, “that almost all the flagship programmes are suffering from
poor identification of beneficiaries or in a way lack of a robust database to understand ‘who is
it to be served’ or ‘who are not being served’. There is also a general lack of convergence both
within and between the departments responsible for the implementation of these flagships.”
As per the Comptroller and Auditor General of India Report of 2008, during the last thirty years,
the Maharashtra government has spent an average of Rs. 13 lakhs for each tribal family through
the tribal development programmes (Quoted in Kokate and Solunke, 2011). In view of the poor
outcomes for STs in a number of social indicators, and the widening gaps, the above findings
should lead us introspect on the processes of implementation of the TSP strategy.

Studies have also found that the schemes for tribal development have not brought about any
perceptible change in the socioeconomic lives of the majority of tribal people in the state.
Many tribal people are not even aware of the tribal welfare programmes that they can benefit
from (Tribhuwan, 2006). For successful implementation of tribal development schemes, tribal
people should have greater access to the schemes. ITDP Offices should be within reach and
functionaries available. However, few studies have tried to investigate the functioning of the
Tribal Development Department in general and the ITDPs in particular; and the district level
administrative departments with respect to planning, implementation and funds flow processes
at different levels.

Against the backdrop of proportional grants available for the Scheduled Tribes, and given
the State’s extensive administrative network (Tribal Development Department and various
10

administrative departments) and the large number of schemes and programmes for the
tribal communities, the tardy progress made in the socioeconomic development of the tribal
communities raises a few important questions:
• Whether the present structure of the tribal sub-plan in Maharashtra is responsive to
the developmental concerns of STs?
• Whether the TSP takes comprehensive account of the variety and diversity between
and within regions?
• Whether the TSP and the PO-ITDP structure provide for suitable mechanisms for
devolution and delegation of powers?
• Whether the TSP and the various tribal department schemes take ample cognisance of
the developments in the last decade pertaining to the rights given to the STs through
various landmark legislations such as the Forest Rights Act, 2006?
• Whether the fund flow mechanisms and budgetary processes ensure smooth
absorption of funds?
• Whether the TSP and the PO-ITDP structure are in line with the letter and spirit of the
PESA Act?
Therefore, the purpose of the study is to gain an understanding of the TSP schemes, programmes
and their implementation by the various implementing agencies. Specifically, the study proposes
to carry out a detailed analysis of the formulation of the TSP, flow of funds, implementation and
monitoring mechanisms followed by the TSP programme implementing agencies, and eventual
impact on the socioeconomic condition of Scheduled Tribe people in the state.

Specific Objectives of the Study

• To understand the planning and implementation strategy adopted with respect to TSP
at different levels, including understanding the perception of programme functionaries.
• To review the process of flow of TSP funds (from allocation to disbursement)
in the state and to analyse its size, distribution and adequacy (in proportion to
population size), choice of schemes (for different social and economic sectors of
the population), disbursement mechanisms, timeliness and synchronization with
the planning cycle.
• To assess the programmatic, financial monitoring and evaluation systems practiced
in the implementation of TSP and to recommend appropriate corrective actions
therein.
• To investigate the reach of benefits to the needy and to assess the nature and extent
of community participation in planning, implementation and monitoring of TSP
programs.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 11

• To identify best/good practices from the TSP implementation for further

dissemination.
• To recommend policy and programme measures for the effective implementation of
TSP and for the greater participation of the tribal community.

Sampling
In order to fulfil the objectives, the study proposed collection and analysis of socioeconomic
data pertaining to tribal areas, examination of TSP budget and expenditure statements at
different levels of administration, examination of government GRs and policy documents,
discussions with programme functionaries, verification of sample beneficiaries, in-depth
interviews with village leaders and key persons and FGDs with community members, etc.

For field investigation, it was proposed to select four ITDPs, one each from the four Additional
Tribal Commissionerates (ATCs). Of the four ITDPs, one ITDP was selected from Nandurbar
district of Nashik ATC because of UNICEF’s deep involvement in this district (Table 2.1). At
the next level, it was proposed to select four blocks, one block from each of the selected
ITDPs. At the third level, it was decided to select eight Panchayats, two per block selected. The
Panchayats were selected at random. For community interactions, we chose two villages from
each selected panchayat/ cluster, thus making it a total 16 of villages (Figure 1).

Table 2.1: A List of Districts, ITDPs, Blocks and Panchayats selected for Collecting
field-level data for TSP study.

S. No. ATC District ITDP Block Panchayats

1 Thane Thane Jawhar Jawhar Dhadri, Hateri

2 Nashik Nandurbar Taloda Akrani Dhabaji, Gorambha

3 Amravati Amravati Dharni Chikaldara Dahedri, Barugvhan

4 Nagpur Chandrapur Chandrapur Sawali Khedi, Chakprinji, Chargaon

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

12

Figure 1: Sampling Process for Collection of Field Level Data

At State Level

Tribal Development Commissionerate

At Regional Level (4 ATCs: Thane, Nashik, Amravati, Nagpur)

1 ITDP from Nandurbar District 3 ITDP on Sample Basis

At Lover Levels

4 Blocks 8 Panchayats 16 Villages

Field Work
Prior to commencement of field work, the research team conducted a desk review of TSP
and formulated the study questions and developed methodology details. The field team had
discussions regarding implementation of TSP with the concerned officials in the state Governor’s
office and the Tribal Development Department Tribal Development Department of the state
government. Discussions were also held with the Tribal Research and Training Institute (TRTI)
and Yashwantrao Chavan Academy of Development Administration (YASHADA) about the
findings of the studies conducted by these agencies. Insights gained from the study findings
and discussions were incorporated into the study tools.

Four teams were formed for field work, each team consisting of one Research Officer (RO) and
two Associate Research Officers (AROs). The field activities were coordinated by a Senior Research
Officer and Principal Investigators. The field teams were given extensive training for about a
month. Training included review of available literature, discussion meetings, a three-day class
room orientation with guest lectures, field visits to a few ITDPs, Ashram Schools, panchayat offices
and villages, and FGD demonstrations. Also included in the training was preparation of checklists
and presentations. At the end of the training, a set of checklists was finalized in consultation with
UNICEF and the Governor’s office. Separate checklists were prepared for Project Officers of ITDPs,
District-level functionaries in the administrative departments, intermediate level functionaries like
Block Development Officers (BDOs) and PHCs, grassroots workers, panchayat-level functionaries
and village leaders and for FGDs.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 13

The field teams visited the selected units (Districts, ITDPs, blocks, panchayats and villages)
and sought documents relating to TSP planning and implementation, budget allocation and
expenditures, minutes of review meetings and instructions issued to the subordinate levels from
time to time, list of projects implemented (including nature, cost, duration and distribution), and
a sample list of beneficiaries (at ITDP/block/panchayat/cluster levels as applicable). Discussions
were also held with concerned officials and field personnel on the planning and implementation
of TSP, financial disbursement mechanisms, programmatic and financial monitoring, evaluation
procedures and their perceptions about the implementation/functioning of the TSP schemes/
programmes.

In addition to seeking documents from programme agencies and discussions with programme
functionaries, a small sample of beneficiaries (drawn from the programme beneficiary records)
were contacted to find out whether the reported benefits had actually reached them and to
understand the extent to which their socioeconomic condition had improved as a result. In depth
interviews (IDIs) were conducted with village leaders, key influential persons and functionaries
like Anganwadi workers and school teachers to gauge the reach and efficacy of government
programmes; and also to understand their interactions with programme functionaries. A few
FGDs were conducted in the selected villages in order to understand the knowledge of the
village people about TSP, their perceptions of the implementation of the programmes, and
attitude towards the implementing agencies and personnel. Based on the reviews, discussions
and observations, we also identified some good practices of TSP implementation and studied
them in some detail.

The actual field work (first round) commenced on February 21, 2014 and was completed on
April 6, 2014. Preliminary findings of the study were presented in a workshop conducted on
April 25, 2014 in which representatives of the Tribal Development Department, Governor’s
Office, UNICEF, NGO representatives, social scientists and members of the TISS community
participated. During the workshop, it was pointed out that some of the findings of the study
lacked adequate explanation or supporting information. Therefore, the field team was directed
to collect additional information on the functioning of ITDPs and the administrative departments
in respect of TSP. Accordingly, the checklists were revised to incorporate additional points in
consultation with UNICEF and the Governor’s office. The field staff then went on a second round
of field visits. During this period, the field team attended a review meeting of Project Officers of
ITDPs at Nashik, which was conducted by the Tribal Development Commissioner. The field team
interacted with the POs and elicited their views on a number of issues. The second field visit
took place between mid-May and mid-June, 2014. In parallel, analysis of budget related data,
Government Resolutions and field reports began and, soon after the second round of field visits,
we commenced drafting the report.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

14

As we selected only four districts and four ITDPs, the number of interviews in each category was
very small (around four). Therefore, this report is a general presentation and not specific to any
district/ITDP/Taluka so that identities of individuals/ departments/officials are kept anonymous.
Though the research team probed or sought clarifications wherever required, no attempts were
made to cross-check the authenticity of the statements with other layers in the system or with
the public as this was beyond the scope of this study. So the findings of the study should be
interpreted keeping this limitation in view.

Tribal Atlas
As part of the study, it was also proposed to construct a tribal atlas for Maharashtra that will depict
the ___location, area, population and socioeconomic and health condition of the tribal population.
The population and socioeconomic related data by district were mainly obtained from the
primary census abstract and housing census of 2001 and 2011 for the general population and
Scheduled Tribes. In addition, data from the District Level Household Surveys (rounds 2 and 3),
National Family Health Surveys (rounds 2 and 3) and National Sample Survey (round 66) were
also used. The maps were prepared using GIS software. The Tribal Atlas is being brought out
separately and is not part of this report.

Some Limitations of the Study

The socioeconomic profile and budget analyses presented in the report are only a reflection
of the current state of affairs and not an assessment of the impact of the TSP budget on the
development front.

The study was planned as a diagnostic study and planned for completion in a short duration.
Therefore, the field work was scheduled for two months only. Within this duration, the field team
had to contact officials and functionaries of the Tribal Development Department and various
administrative departments at different levels, and also Gram Panchayat functionaries and
community members. Sometimes, the team had to make repeated visit to offices as the concerned
officers were not available or would not give an appointment. For this reason, the study team
could contact only a limited number of departments and functionaries.

The focus of the study was on the programme component (input) side and less on the community
(impact) side. Thus, the investigation on the community side was limited to understanding the
people’s perception of the Tribal Development Department, other administrative departments
and the Gram Panchayats. Detailed investigation of the community and households about
their current socioeconomic status and the benefits received from the Tribal Development
Department and Administrative departments was not undertaken, nor was it within the scope
of the study.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 Chapter 3
Socioeconomic Profile

Scheduled Tribes and TSP Areas

The Scheduled Tribes population in Maharashtra is about 10.5 million. The ST population is
high in these districts (percentage of ST population in the district in parentheses and shown
in descending order): Nandurbar (69.3%), Gadchiroli (38.7%), Dhule (31.6%), Nashik (25.6%),
Yavatmal (18.5%), Chandrapur (17.7%), Gondiya (16.2%), Jalgaon (14.3), Amravati (14.0%),

Sub Plan Area by Component

1%
2%
5%
As per the 2001 census, the tribal
Sub-Plan area constitutes about
50% 16.5 percent of the total area of the
42%
State, with 50.1 percent of the ST
population covered in TSP area.

OTSP TSP ATSP MADA Mini-MADA

Thane (13.9%), Raigarh (11.6%) and Wardha (11.5%). As per the 2001 Census statistics (available
on the website of Tribal Development Department of Government of Maharashtra), the tribal
Sub-Plan area is about 50,757 sq.km (16.5 percent of the total area) with 41.6 percent of the ST
population covered under TSP, 1.7 percent under ATSP, 5.5 percent under MADA, 1.3 percent
under Mini-MADA and the remaining 49.9 percent of the ST population were living outside the
TSP (OTSP) area. It must be noted that the statistics quoted here are based on the 2001 census;
classification based on 2011 census data is not yet available.

Often, the tribal populations under TSP, OTSP, MADA and Mini-MADA are together referred
to as the tribal population of the TSP area. This constituted 50.1 percent of the ST population
in Maharashtra. The TSP area tribal population is distributed over 68 blocks and 13 cities/
towns of 15 districts. A map of the tribal Sub-Plan area of Maharashtra state was presented
in Chapter 1. In this chapter of the report, we present a brief account of the demographic,
socioeconomic and health condition of the tribal population vis-à-vis the total population for
Maharashtra state as a whole. It is to be noted that district-wise statistics and salient findings
of selected indices for the TSP districts are presented separately in the Tribal Atlas.
16

What does the latest Maharashtra Human Development Report say?

Before going into a detailed analysis of the demographic and socio-economic indicators of the
tribal population of Maharashtra, we present here a glimpse of what is officially recognized as
the latest Maharashtra Human Development Report 2012 (YASHADA 2014, Executive summary)
says.

The report admits that the Human development The latest Maharashtra Human
indicators of tribal population lag far behind those Development Report admits that the
of the total population. The report also categorically condition of tribal population is far
behind that of the total population in
states that, though Maharashtra is an industrially
terms of most human development
advanced state, the status of tribal people in the
indicators. Census figures and DLHS
state is deplorable.
figures also indicate that in almost
every indicator of economic or
With respect to literacy, the report, citing NSS
social development STs lag behind
data, says that the STs have the lowest literacy rate
the general population.
(62 per cent) and a gender gap of 24 percentage
points, thus highlighting a cause for concern.
Social-group stratification by net school attendance rate showed that ST children are
lagging behind at both primary and upper primary levels. However, an interesting finding
is the advantage that ST and SC females have in school attendance in primary and upper
primary levels in a few regions as well as at state level. This could be a reflection of the
effectiveness of interventions aimed at promoting school participation for these social
groups.

With regard to health, the sex ratio for STs is well above the state average and life expectancy has
improved. This reflects the largely equal status that women are accorded in tribal communities.
ST households show very low utilization of public health facilities. This is partly due to absence
of health facilities in remote and scattered habitations; but it is also because of poor service
delivery in tribal-dominated areas. (The statements in the above paragraphs are those extracted
from various sections of the Maharashtra Human Development report of 2012, see YASHADA
2014, Executive summary).

In the following paragraphs, we attempted to assess improvement in the population

characteristics and socio-economic conditions of STs vis-à-vis the total population based on the
census of 2001 and 2011, DLHS-based health indicators for 2004-08 and related statistics from
other sources. It is to be noted that in this chapter, ‘All’ and ‘Total’ are used to refer to all (including
ST) households and population and ‘ST’ is used to refer to ST households and population in
Maharashtra.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 17

Population Growth
Table 3.1 shows the size and growth of the tribal population in Maharashtra. In 1981, the
population of Maharashtra was 62.8 million (6.28 crores) and the Scheduled Tribe population
was 5.8 million, or about 9.2 percent of the total population of the state. The total number of
households in the state in 1981 was 11.7 million. Of these, 1.1 million were ST households.
According to the 1991 census, the population in the state increased to 78.9 million and that of
Scheduled Tribes to 7.3 million, thereby accounting for 9.3 percent of the total population. In
terms of population growth, during 1981-91, the state population increased by about 26 percent
while Scheduled Tribe population increased by approximately 27 percent. It must be noted
here that the growth of Maharashtra is partly due to the enormous growth of the population
of Mumbai and Pune as a result of inter-state migration. Thus, if inter-state migration is not
considered, the growth of ST population would be higher than that of the general population
growth of Maharashtra.

Table 3.1: Trend in Number of Households and Population in Maharashtra during 1981-2011,
Total and Scheduled Tribes

Census Total Scheduled Tribes % share of % Decadal Variation

Year (in million) (in million) Scheduled Tribes

Total Scheduled Tribes

House- Popu- House- Popu- House- Popu- House- Popu- House- Popu-
holds lation holds lation holds lation holds lation holds lation

1981 11.69 62.78 1.09 5.77 9.36 9.19 NA NA NA NA

1991 15.34 78.94 1.41 7.32 9.22 9.27 31.25 25.73 29.22 26.79

2001 19.58 96.88 1.71 8.58 8.73 8.85 27.58 22.73 20.85 17.20

2011 24.42 112.37 2.16 10.51 8.83 9.35 24.75 15.99 26.19 22.54

Maharashtra’s population further increased to 96.9 million in 2001 and to 112.4 million in 2011;
that of the Scheduled Tribes to 8.6 million (8.85 percent) in 2001 and 10.5 million (9.35 percent) in
2011.Though the share of ST population remained at 9.2 to 9.3 percent in each census year, it was
slightly lesser at 8.85 percent in 2001, the reason for which is not yet known.

During the period 1981-2011, the number of households and the total population grew more
or less in the same proportion, but the share of ST households to ‘All’ households decreased
from 9.4 percent in 1981 to around 8.8 percent in 2011 indicating that the rate of increase of
number of households of ‘All’ households was faster than that of ST households. An exception

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

18

to the trend was during the last decade when the growth of ST household was greater. At the
same time, the percentage decadal increase in the total population has been slowing down
whereas there are no such indications for the ST population. The decadal increase in the ‘total’
population was 25.7 percent during 1981-91, which was 22.7 percent during 1991-2001 and
continued to decline further in 2001-11during which it was 16.0 percent. On the other hand,
decadal growth of ST population was 26.8 percent during 1981-91, 17.2 percent during 1991-
2001 and 22.54 percent during 2001-11. This is reflected in the increase in the percentage of ST
population of the total population during 2001-11.

Decadal Increase of Population, All & ST

30

25
% Decadal Variation

20

15
All
10
ST
5

0
1981-1991 1991-2001 2001-2011

Population Characteristics
Table 3.2 shows that the average household size of ST population
The overall sex-ratio
was higher than that of total population in 2001 and also in 2011; and 0-6 age group
but within the ST population, it did not differ between Maharashtra sex ratio were more
and All India. Average Household Size refers to the average number balanced for ST
of members per household (family). A smaller household size is an population than for
indication of more and more households becoming nuclear and/or total population.

couples having lesser number of children. The average household size

was about5 in Maharashtra for both total and ST population in 2001.By 2011, this had reduced
to 4.60 for the total population and only marginally to 4.87 for the ST population. Nationwide, in
2011, it was 4.85 for the total population and 4.86 for the ST population.

The percentage of population in the 0-6 years’ age group indicates recent trends in fertility. A falling
percentage of population in 0-6 age group is an indication of declining fertility in the population.
In Maharashtra, the proportion of ST population in the0-6 age group declined from 18.0 percent
in 2001 to 14.8 percent in 2011. For the total population, the corresponding figures were 14.1
and 11.9 percent for the same period. The data clearly show that though the young population is
higher among the STs than among all, there is a perceptible decline in fertility during 2001-2011
among both total and ST populations. In Maharashtra, the fertility of ST population appears to

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 19

have declined at about the same rate as that of total population. Further, within the ST population,
the percentage of 0-6 population was smaller in Maharashtra than the All India figure −it was 14.8
percent in 2011 as against 16.0 on an All India basis.

Table 3.2: Selected Characteristics of Total and ST Population of Maharashtra in 2001 &2011, and for
India in 2011

Population Characteristic Maharashtra India

2001 2011 2011

Total ST Total ST Total ST

Average household size 4.95 5.02 4.60 4.87 4.85 4.86

% of persons in 0-6 age group 14.1 18.0 11.9 14.8 13.6 16.0

Sex-ratio (all ages) 922 973 929 977 943 990

Sex-ratio (0-6 age group) 913 965 894 955 918 957

Sex ratio is defined as the number of females per 1000 males. It refers to the excess or deficit of
females over males in a population. A deficit of females (sex ratio less than 1000) is an indication
of foeticide and/or infanticide of females, discrimination against females in health care leading to
higher deaths among them, and the underreporting of females in population enumerations and the
like. In Maharashtra and also at an all-India level, the overall sex ratio and also the sex-ratio of young
population (0-6 age group) was more balanced (close to 1000) for STs than for the total population.
Both in 2001 and 2011, the overall sex-ratio (for all ages) was substantially low and in the narrow
range of 922-929 for the total population, while it was 973-977 for the ST population. The sex-ratio
for the 0-6 age group was 913 in 2001 and it declined to below 900 in 2011 for the total population;
during the same period, it reduced marginally from 965 to 955 for the ST population.

Educational Attainment
The literacy rates among STs (male and female) in 2001 and 2011, as given in Table 3.3a, are
much less as compared to the total population. The difference was high (about 22 percentage
points) in 2001, which reduced to 17 percentage points in 2011. Correspondingly, during 2001-
11, the rate of increase in literacy was substantially higher for the ST population than for the total.
Increase in literacy was 3 percent for males and 13 percent for females in the total population;
for the ST population, the corresponding increase was as high as 11 percent for males and 32
percent for females. This is a welcome trend and clearly shows that, though literacy among STs
was lower than that of the general population, there has been an accelerated increase in literacy
rates among the ST population, at least during the past decade. This should not discount the
fact that there is a large gap that still exists between the literacy achievements of STs vis-à-vis
the total population.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

20

The percentage of children attending school/college by sex and age (6-9, 10-14 and 15-19
age groups) and percentage of persons in the age group 15-24 who had education above
the 10th Standard (completed Standard 11 and above) was obtained from the National
Sample Survey (NSS) Round 66 (July 2009-June 2010) and are presented in Table 3.3b. The
percentage of children attending school in the age group of 6-9 years is an indication of early
school enrolment and primary school attendance. The percentage of children attending
school in the age group 10-14 is an indication of school attendance in the upper primary/
middle and high school levels. On the other hand, the percentage of children attending
school/college in the age group 15-19 is an indication of continuation of schooling up to
and beyond SSLC (10th Standard). Similarly, the percentage of persons in the age group
15-24 who completed 11th Standard reflects the number of children who proceeded for a
higher education after completing high school (12th Standard) in the recent years. Recent
studies have observed (example, Rajaretnam et al, 2010) that, these days, most children
attend school up to SSLC (Standard 10) and drop out thereafter and, therefore, the index
percentage of persons in the age group 15-24 who have completed 11th Standard is a good
indicator of the recent trend in education after high school.

Table 3.3a: Literacy of Total and ST Populations in Maharashtra 2001 & 2011, and for India 2011

Literacy (7+ age group) Maharashtra India

2001 2011 2011

Total ST Total ST Total ST

Total Literacy Rate 76.9 55.2 82.3 65.7 73.0 59.0

Male Literacy Rate 86.0 67.0 88.4 74.3 80.9 68.5

Female Literacy Rate 67.0 43.1 75.9 57.0 64.6 49.4

The data presented in Table 3.3b show that in Maharashtra, Though literacy levels among
95 percent of male children in the age group of 10-14 STs was lower than that of the
years were attending school and it was only slightly less general population, there has
at 93 percent for children in the age group of 6-9 years, been an accelerated increase
in the literacy rates in the ST
which may be due to late school enrolment. For ST male
population, at least during the
children, the corresponding figures were 87 percent
past decade. But there also exists
and 77 percent and the pattern was almost the same a large gap between STs vis-à-
for female children. However, what is heartening is that vis the total population. School
among the ST children in the 10-14 age group, school attendance among ST children
attendance was higher for female children (94 percent) was only slightly less than that of
than for males (87 percent). all children and education above
high school is also improving
among the ST population, closely
following the general population.
Tribal Sub-Plan in Maharashtra: A Diagnostic Study
 21

Table 3.3b: Percentage of Children of Age 6-24 attending School/College by Sex and Age, and
Percentage of young people of age 15-24 years who had Education beyond Standard 10, (NSS round 66,
July 2009-June 2010)

ST/All Attending School/College Education

11+ std
Male Female (15-24 age
group)

6-9 10-14 15-19 20-24 6-9 10-14 15-19 20-24 Male Female

All/Total 93.1 95.4 71.8 25.0 94.1 95.9 62.8 18.0 34.9 27.7

Scheduled Tribes 76.9 87.1 58.8 18.5 72.6 93.5 40.4 9.7 23.7 14.3

Difference (ST-All) -16.2 -8.2 -12.9 -6.5 -21.5 -2.3 -22.4 -8.3 -11.2 -13.4

In the age group of 15-19 years, nearly 72 percent of male children and 63 percent of female
children in the total population were attending school. It was significantly less at 59 percent for
male children and 40 percent for female children in the ST population. On the other hand, in
the age group 20-24, only 25 percent of male children and 18 percent of female children of the
total population were attending school/college, while it was marginally less at 19 percent for
male children and 10 percent for female children in the ST population. Similarly, the percentage
of children in the age group 15-24 in the total population of Maharashtra, who had education
above SSLC (11th Standard and beyond), was 35 percent among males and 28 percent among
females. For the ST population, it was 24 percent for males and 14 percent for females. The gaps
between the STs and other groups are substantial and need urgent redressal.

Landholding and Occupation

Table 3.4a shows cultivated landholding of All and ST households in rural and urban areas as
per NSS round 66 (July 2009-June 2010). The Table shows that in the rural areas of Maharashtra,
nearly 46 percent of the households did not have land for cultivation. It was noticeably higher
at 51 percent among tribal households. However, among the landholding households, ST
households possessed an average of 3.1 acres of land as compared to 2.6 acres by all households.
Among the households living in urban areas, 7 percent of all and 6.7 percent of ST households
possessed land for cultivation.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

22

Table 3.4a: Cultivated Landholdings for Total and ST Households in Rural and Urban Areas by Region as
per NSS round 66 (July 2009-June 2010)

ST/All Cultivated Holding (Rural households) % Urban HHs

with
No land Marginal Small Medium/ Mean Median Cultivated
Farmer Farmer Large (acres) (acres) Holding
farmer

All households 45.8 25.3 12.4 16.5 3.98 2.62 7.0

Scheduled Tribes 51.3 19.8 14.9 14.0 3.78 3.13 6.7

Difference (ST-All) 5.4 -5.4 2.5 -2.5 -0.2 0.5 -0.3

Note: Marginal farmer: owning up to 2.5 acres of land; Small farmer: 2.6 to 5 acres; Medium/Large farmer: >5
acres

With respect to work participation, it can be seen from Table 3.4b that, in 2001 and 2011, around
62-65 percent of males aged 7 and higher in the total and ST population were workers. However,
among the females, in the same period, only 35 percent of the total population and nearly 55
percent of the ST population were workers. Of the males, nearly 85-90 percent were main workers
(who worked more than 180 days during the preceding year).Among the females, it was only 70-
80 percent. Of the main workers in 2001, just around 25 percent of males and females in the total
population were cultivators; the figure was 34 percent for the ST population. The percentage of
cultivators among the main workers in the ST population decreased to 25-27 percent during
2001-11. This indicates that the proportion of cultivators decreased faster among the STs than
among the total population. On the other hand, the proportion of labourers among the main
workers was higher and increased at a faster rate for In rural areas of Maharashtra, nearly
the STs than the total. The proportion of workers who a half of All households and more
were marginal workers also showed a similar pattern than a half of ST households did not
(increase was higher for STs than for All). However, the have land for cultivation. Though

proportion of main workers engaged as cultivators work participation was higher among
STs than among All, the proportion of
was substantially less in Maharashtra (25 percent) than
cultivators was less and the proportion
that for All-India (around 40 percent). The proportion
of labourers was substantially higher
engaged as labourers was significantly higher in among ST as compared to All.
Maharashtra (50-63 percent) than the All-India (30-45
percent) figure. Therefore, it is clear that, among ST
males and females, work participation was almost the same for Maharashtra and India; however
there were fewer cultivators and more labourers in Maharashtra than when considered on an
all India basis.

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 23

Table 3.4b: Occupation of Total and ST Populations, Maharashtra 2001 &2011 and India 2011

Occupation Maharashtra India

2001 2011 2011

Total ST Total ST Total ST

% of Persons Worker (7+ age) 49.5 49.7 49.9 59.4 46.1 58.0

% of Males Worker (7+ age) 62.1 64.8 63.7 64.9 61.8 64.3

% of Females Worker (7+ age) 35.8 56.4 35.1 53.8 29.5 51.6

% of Male workers Main worker 90.9 84.3 91.9 86.3 82.3 74.5

% of Female workers Main worker 72.1 68.3 81.9 77.3 59.6 52.7

% of Male Main workers Cultivator 23.0 34.2 23.9 27.4 26.7 43.3

% of Female Main workers Cultivator 27.9 34.5 31.2 25.1 25.6 36.6

% of Male Main workers Labourer 14.7 39.7 19.5 49.1 20.2 31.3

% of Female Main workers Labourer 25.8 53.8 37.9 62.9 34.6 44.9

% of Workers Marginal worker 15.6 23.1 11.5 17.7 24.8 35.2

MGNREGA Work
Table 3.4c shows the percentage of households who received work under National Rural
Employment Guarantee (NREG) scheme and the Monthly Per capita Consumer Expenditure
(MPCE) for ST and ‘All’ as per NSS Round 66 (July 2009-June 2010). It can be seen from the Table
that in the rural areas of Maharashtra, barely 4.4 percent of all rural households had received
work under the NREG scheme during 2009-10.The proportion was slightly higher at 6.3 percent
among ST households. Even considering only the households that sought work, only 22 percent
of ST households and 16 percent of all households received work.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

24

Table 3.4c: Percentage of Households that received NREG work, and Monthly Per capita Consumer
Expenditure of households of STs and All as per NSS round 66 (July 2009-June 2010).

All/ST Got NREG work in Monthly Per capita Consumer Expenditure

one year (Rural)
Rural Urban

Among Among Up to Above Mean Me- Up to Above Mean Me-

all HHs HHs Rs. Rs. (Rs.) dian Rs. Rs. (Rs.) dian
sought 1,000 3,000 (Rs.) 1,000 3,000 (Rs.)
work

All households 4.4 16.0 58.6 1.5 1062 919 17.8 22.8 2556 1847

Scheduled 6.3 22.4 70.5 0.2 930 783 30.0 18.3 3561 1480
Tribes

Difference 1.9 6.4 12.0 -1.2 -132 -136 12.1 -4.5 1005 -367
(ST-All)

Consumption Expenditure
Table 3.4c also shows NSS estimates of monthly per capita consumption expenditure (MPCE) by
‘All’ and ST households in 2009-10 for rural and urban areas of Maharashtra. The MPCE reflects
a household’s ability to spend on various consumer items including food items as against
their income. The Table shows that, in the rural areas of Maharashtra, less than 30 percent of
ST households could spend more than Rs. 1000 per person per month for their livelihoods
as against 41 percent of ‘All’ households. This is a substantial gap. The corresponding figures
for urban areas are 70 percent and 82 percent. The median amount of per capita expenditure
worked out to Rs. 783 for ST households and Rs. 919 for ‘All’ households in rural areas, and Rs.
1480 for ST households and Rs. 1847 for ‘All’ households in urban areas.

Household Characteristics
Poor incomes translate into poorer quality of household assets and characteristics. The
household characteristics considered are: the type of house, tap water, improved drinking water,
toilet facilities, source of lighting, LPG for cooking, access to banking services, and possession of
television, phone and 2 and/or 4-wheeler (Table 3.5). In the census, the condition of the house
inhabited, such as material used in the construction of roof, wall and floor of the house, number
of rooms in the house, availability of separate kitchen and bathroom were ascertained.

64 percent of households in the total population and only 48 percent in the ST

population were perceived to be living in ‘good’ houses (it must be mentioned here that
the definition of a ‘good’ house may vary between the two groups). As most of the ST
families were living in huts for several years, it is obvious that a house ST family consider

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 25

‘good’ may not be perceived as one by a non-SC/ST family. Therefore, if we take into
account this factor also, the proportion of ST households living in comparable ‘good’
houses would be even less.

Viewing the housing index differently, and considering

Facilities available in ST
the type of roof as an index, it was seen that in 2011, about
households are far less than that
30 percent of ‘All’ households were living in houses with of All households but, during
concrete roofing, whereas it was just 12 percent among 2001-2011, the progress made in
ST households. The percentage increase of households addition of household facilities was
living in houses with concrete roofing during 2001-11 more or less the same for ST and
was the same for both the groups though the absolute non-ST households. Significantly,
household electrification and
increase was less for ST households. The pattern was
safe drinking water supply have
almost the same for Maharashtra and the whole of
not improved during the past
India. Further, the proportion of households living in
one decade, and more efforts are
houses with only one dwelling room in 2011 was 46 required to improve the situation.
percent among ‘All’ households and60 percent among
ST households.

Household facilities in ST households as compared with all households clearly indicate that ST
households are well behind non-ST households. In some items, they are just behind; and in
many others they are lagging by a considerable degree. However, during 2001-11 the progress
in household facilities was more or less the same for ST and non-ST households. Significantly,
electrification of households and safe drinking water supply have not improved during the past
decade and more efforts are required to improve the situation.

With respect to household facilities, in 2011about 67 percent of all households and only 48
percent of ST households were using tap water. However, nearly 86 percent of ‘All’ households
and 75 percent of ST households were having access to improved drinking water (tap water or
hand-pump). Improvements in the drinking water supply during 2001-11 were minimal, just 3-5
percentage points for both All and ST households.

The percentage of ‘All’ households having toilet facilities within the premises increased from
35 percent in 2001 to 53 percent in 2011. It was 20 percent to 30 percent for ST households
during the same period. The situation was similar with respect to household electrification.
Electrification of ST houses (electricity as main source of light) was 52 percent in 2001, which
increased marginally to 60 percent in 2011.The pattern was similar for ‘All’ households. It is a
matter of regret that there was no significant improvement in the electrification of houses
during 2001-11 despite the fact that there has been large scale increase in the use of electrical
appliances like fans, televisions and mobile phones. ST households having LPG connection in
2011 was less than 20 percent while it was 43 percent among All households.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

26

Table 3.5: Household Characteristics of Total and ST, Maharashtra, 2001 &2011 and India 2011

Percentage of households: * Maharashtra India

2001 2011 2011

Total ST Total ST Total ST

Living in ‘Good’ Houses 52.6 36.7 64.1 48.0 53.2 40.6

Having a house with Concrete Roof 21.1 8.5 30.2 12.2 29.0 10.1

Having only one Dwelling Room 52.3 64.9 46.3 60.0 41.0 48.7

Using Tap Water 64.0 45.2 67.9 48.4 43.5 24.4

Access to Improved sources of Drinking Water (Tap, 79.8 69.4 85.6 75.1 87.1 73.4
hand pump and closed well)

Having toilet facility within premises 35.1 20.2 53.1 30.1 46.9 22.6

Using electricity as Main Source of Lighting 77.5 52.2 83.9 59.8 67.2 51.7

Using LPG for Cooking 29.7 12.1 43.4 18.9 28.5 9.3

Availing Banking Services 48.1 26.2 68.9 47.9 58.7 45.0

Having Television 44.1 22.6 56.8 30.2 47.2 21.9

Having Telephone/Mobile Phone 14.1 4.5 69.1 39.7 63.2 34.8

Having 2/4 wheeler 16.6 6.3 30.8 12.1 25.7 10.6

With no Assets 36.8 56.6 19.0 43.0 17.8 37.3

* Please see text for definition/explanation of the indices.

In 2011, nearly a half of the ST households (48 percent) were seeking banking services (having
a bank account of any type in any bank).30 percent of ST households were having television, 40
percent were having telephone/mobile phones, but barely 12 percent were having 2-wheeler
or 4-wheeler motor vehicles. The corresponding percentages were more than double for ‘All’
households. It is distressing to note that 43 percent of ST households (as compared to only 19
percent of All households) did not have any assets like radio, television, phone, 2/4 wheeler or
even a bicycle. The proportion of ST households not having any assets was 57 percent in 2001,
which decreased marginally to 43 percent in 2011. Consider that owning a mobile phone and
television set is a given these days, the figures indicate that modern life is yet to enter many ST
households of Maharashtra.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 27

Health Factors With respect to health care, though a

The District Level Household and Facility Survey large proportion of women received
(DLHS) is one of the largest demographic and health one or the other antenatal services
and child immunization, the
surveys carried out in all the districts of India. The
services were not holistic. Further,
third round of DLHS (called DLHS-3) was conducted
the proportion of institutional
during 2007-08 on a sample of 1000-1500 households
deliveries was far less among ST
per district. All ever-married women aged 15-49 years women. Health staffs have not
were respondents to questions on reproductive and made systematic efforts to cover
child health (RCH). DLHS-3 surveyed a total of 37,716 all women and children for all the
households and 34,920 ever-married women in applicable antenatal, natal and child
Maharashtra. (It needs to be noted here that the DLHS-4 immunization services and, as such,
the health care delivery system
(2013-14) has also been conducted and first set of indices
needs substantial improvements to
released. However, the socially disaggregated data are
reach the maximum number of ST
not yet available, nor was the unit data set released
women and children.
at the time of writing this report. For these reasons we
could not use DLHS-4 data for analysis).

Four indices are considered as indicators of age at marriage. They are: mean age at marriage
of girls who got married during the four year period prior to the survey, age at marriage of
currently married women (CMWs)aged 15-49 years, percentage of CMWs age 15-49 who were
married before the age of 18, and the percentage of CMWs aged 20-24 married before age 18.
While the first and fourth indices, namely age at marriage of girls who got married during the
four year period prior to the survey and percentage of CMWs age 20-24 married before age 18
refer to recent trends in age at marriage, but are based on a few cases, the other two indices
refer to the average over a longer duration, but are based on a larger number of cases. All the
four indicators consistently showed that ST women married earlier than ‘All’ women but the
difference was marginal. The mean age at marriage of
Various indicators in the Census and
DLHS data show comprehensively CMWs age 15-49 (which includes women married long
that the social indicators for STs ago) was 16.7 years for STs. This age was marginally
lag far behind the non-STs. Some higher at 17.4 for ‘All’. The mean age at marriage for girls
of these gaps such as in health, who got married recently was 18.9 for STs as compared
income, and assets clearly hold to 19.4 years for ‘All’. Similarly, the proportion of CMWs
grave implications for the wellbeing of age 20-24, who married before the legal age for
of STs. These gaps, and the less
marriage of 18, was 49 percent among ST as against 40
than adequate outcomes as shown
percent among All.
by most indicators, raise questions
about the efficacy of the service
Antenatal care (ANC) such as timing of the first antenatal
delivery system as well as that of
visit, IFA tablet, TT injection and full ANC (at least 3 ante-
the TSP structure.
natal visits, 100 IFA tablets or syrup and TT injection)

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

28

were also considered. The data presented in Table 3.6 show that utilization of individual ANC
services by ST women was comparable with ‘All’ women. Though the first ANC visit was delayed
(later than the first trimester), in a majority of ST cases, overall, at least 75 percent of ST women
received individual services such as antenatal visits, IFA tablets and TT immunization. However,
the proportion of women who received all the three services (3 ANC visits + TT + 100 IFA tablets/
syrup) was less− just one-third of eligible women. The pattern is the same for both ST and ‘All’
women. In the tribal areas, health workers often provide ANC services through Anganwadis;
but, in the general population, a significant proportion of women seek institutional services
mainly from private health institutions. PHC services, delivered through health workers, have
reached a majority of ST women. However, the fact that a large proportion of women have not
received all the services indicates that the services were far from complete.

Delivery care paints a poor picture. Among ST women, only one-third of them had sought
delivery in health institutions, while it was about two-thirds for ‘All’ women. One reason for
this state of affairs is that health institutions are located far away from most tribal villages and
transport facilities are lacking. Even if we consider safe deliveries (institutional deliveries plus
deliveries conducted at home by paramedical staff and trained dais), the situation remains
worrisome as the proportion of deliveries that can be considered safe was 42 percent among ST
women and 69 percent among all women.

To promote institutional deliveries, the government introduced a Janani Suraksha Yojana (JSY)
under the National Rural Health Mission (NRHM) with a cash incentive of Rs 1400 (enquiries
by study teams in the selected villages revealed that the amount was only Rs. 700) for BPL
families who opt to deliver their babies in health institutions. According to the data, only about
15 percent of the ST women reported that they received JSY incentives. This figure was just7
percent in the total population. Though the proportion (15 percent) for ST women is higher
than that for all women, given the fact that most ST women are belong to BPL families, the
coverage by JSY is far less than what it should be.

In child care (for children born during 2004-2007) we have considered colostrum feeding,
initiation to breastfeeding within an hour of birth, immunization, and diarrhoea and fever
during the two weeks before the survey for the appropriate age groups. The data show that
more than three-fourths of the children of ST households and also of ‘All’ households were fed
colostrum but only around 50 percent were initiated to breastfeeding within an hour of birth.
The proportion of children of age 12-23 months who received full immunization (BCG, three
regular doses each of DPT and Polio, and measles vaccination) was 70 percent in the ‘All’ children
group but only 52 percent among ST children. However, there were very few (1-5 percent)
children who did not receive even a single vaccination dose.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 29

Table 3.6: DLHS-3 (2007-08) based Health Indicators for All and Scheduled Tribes, and DLHS-4 (2013)
based Indicators for All

Health Indices All (2008) ST (2008) All (2013)

Age at marriage of women 

Mean age at marriage of girls (married during reference period) 19.4 18.9 19.3

Mean age at marriage of CMWs 15-49 17.4 16.7 NA

% of CMWs 15-49 who were married before age 18 51.9 61.8 NA

% of CMWs 20-24 who were married before age 18 40.4 48.8 NA

Antenatal Care 

% of women who received ANC in first trimester 31.8 42.2 77.5

% women who received 100 IFA tables or syrup 83.8 85.1 45.4

% women who received tetanus injection for last pregnancy 89.5 77.7 96.8

% of women 15-49 years who received full ANC (3 ANC visits + TT + 33.9 31.9 40.9
IFA)

Delivery Care 

% women who delivered their last child in an institution 63.5 34.0 92.0

% women who had a safe delivery (institutional/paramedical/ trained 69.4 41.5 95.9
dai)

% women who received financial assistance under JSY 7.1 15.0 17.6

Contraceptive prevalence rate (modern methods, EMWs 15-49) 62.8 59.3 65.3

Child care 

% children who received colostrum 85.7 80.8 NA 

% children who were breastfed within an hour of birth 52.0 46.9 71.2

% children age 12-23 months who were fully immunized 69.5 52.3 66.2

Note: DLHS-4 data for ST was not available (NA) at the time of writing the report. DLHS-3 indices are based on
data processed by the study team; that of DLHS-4 are from State Fact Sheet published by IIPS, Mumbai.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 Chapter 4
Budget Analysis
The prime objective of the TSP is the holistic development of tribal regions and tribal families to
bring them at par with the non-tribal areas and families. It is imperative that a significant share of
plan1 funds reaches the tribal population to bridge the gap between tribal areas and other areas,
enhance their quality of life and eradicate poverty, end exploitation, and expedite the process of
their social and economic development. TSP funding is dependent on the state’s income, financial
aid given by the Central Government, and other sources such as the World Bank, etc. Having
decided the quantum of TSP funds that would be made available, the Planning Department
communicates the amount to the Tribal Development Department which then distributes it to
different departmentsaccording to the defined norms. Within the allocations, the quantum of
money that would be spent on different tribal development programmes is decided by the Tribal
Development Department whereas the programmes or schemes that are to be implemented is
determined largely by the administrative departments.

TSP schemes fall broadly into two categories −State and District schemes. District schemes are
planned at the district level with the help of District Planning Committees (DPC).State schemes
are planned at state level by the respective administrative departments. State-level schemes
include state-level programmes and state bridge programmes. State-level programmes are
planned and consolidated by the Tribal Development Department. Besides these schemes,
the Tribal Development Department is also responsible for planning and implementing Social
Welfare schemes (welfare of backward class) through the ITDPs.

This chapter shows the trend in the allocation of funds for TSP activities over a period and the
allocation of funds to different administrative departments during the past few years. Before
analysing the budget data, it is important to examine the salient features of the recommendations
of two committees, the Sukthankar Committee and Dr. Jayant Patil Committee, which studied
the proportional allocations to different sectors and departments.

Sukthankar Committee
The procedure followed in Maharshtra until 1992-93 for formulating the TSP was that the Planning
department would allocate plan outlays to different administrative (or line) departments. The
departments in turn carved out outlays for TSP according to their discretion and priorities. The
departments also decided on the schemes, programmes and development works that were
to be undertaken with the funds set aside for TSP. There was no attempt to formulate schemes

1. As TSP is not concerned with the Non-Plan funds.

32

in consultation with the tribal area’s project administration. Not unexpectedly, there was no
noticeable impact of such schemes in the tribal areas, particularly in the human resource
development sector.

Given the evident problems and shortcomings of the processes, the State Government took
up the issue with the State Planning Board before the commencement of the Eighth Five-
Year Plan. The State Planning Board appointed a Sub-Committee in January 1991 under
the Chairmanship of Shri. D.M. Sukthankar, member of the Board and former State Chief
Secretary. The Sub-Committee submitted its report in June, 1992.The report of the committee
is summarized below.

Lacunae observed by the Committee in Planning and Implementation of TSP

Several lacunae were identified by the Committee.

1. Large amounts of funds were made available for irrigation projects, electricity plants and the
like. In reality, however, these projects did not benefit tribal societies. Therefore, the Committee
felt that such projects should be given a lower priority and less funds. The Committee also
proposed that informal and professional training, nutrition and health, agriculture and
horticulture, water and soil conservation, fisheries, small irrigation, safe drinking water,
employment, cross roads, drainage, and other such schemes to raise socioeconomic status
of the tribal people be prioritized to help their development.

2. Tribal families did not benefit much from district level schemes and the fund flow at the
district level was shrinking daily and enough provisions in the budget outlay was not made
for the weaker sections of society. Although provisions and expenditures were shown on
paper, there was no noticeable development in the targeted areas. The funds that were
made available had to be spent in the same year and, as a result, spending the money
became the prime objective. No department was made accountable for the extent to
which funds were actually spent on the welfare of tribal communities.

3. There were clashes between the tribal communities and the Forest Department. The former
suspected that the Forest Department was established to control, restrict and punish them.
There was deep distrust between the two sides. The Sukthankar Report suggested that the
Forest Department should involve the tribal population in planning conserving forest resources,
and also to create employment opportunities for their livelihood.

Recommendations of the Committee for the working of TSP

The Report noted that it was the responsibility of TDD to keep a close watch on the planning and
implementation of TSP and Five Year Plans. The Committee recommended that responsibility

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 33

The allocation for the Tribal of implementing schemes, decision-making and

sub-Plan is made at the beginning providing guidance to various departments be vested
of the budgetary process. This with the TDD only. The TDD should be informed in
allocation is in the proportion to advance of the total available funds from the total state
the population, and is under the budget and it should assume full responsibility for
administrative control of the tribal
finalizing the TSP budget.
development department. Thus, the
possibility of diversion of the budget In order to reach out to the communities, the
for non-TSP purposes is very little.
planning process should begin at the lowest level,
This is a positive feature of the TSP
the villages (a bottom-up approach). Consistent
strategy in Maharashtra.
efforts must be made to develop tribal zones and
provide benefits to tribal families living in OTSP
areas as well. For this purpose, it was recommended
that 75 percent of the budget outlay be spent on TSP area and the remaining 25 percent
should be spent on OTSP area.

Any development agency (or committee) that seeks to engage in tribal development should
be sufficiently informed about conditions in tribal areas so that they can plan and implement
schemes for tribal welfare in accordance with the established norms. The TDD should provide
the necessary training and guidance to its employees and officers, and also to district and block
level officers of the various administrative departments.

District- level planning should be based on the needs of the local community, and focus should
be on delivery of benefits to people and families. Simultaneously, small local communities
should benefit from collective projects such as construction of cross-roads, electrification, and
provision of water supply, education and agricultural facilities.

Large scale projects such as dam building, state highways and main roads, power plants should
be given least priority in TSPs. Instead, priority should be given to Informal and vocational
training, nutrition and health, agriculture and horticulture, water and soil conservation, fisheries,
small irrigation, safe drinking water, employment, cross roads, drainages, schemes to increase
socioeconomic status, handicrafts and child welfare. The priorities of various programmes must
be need-based in keeping with the demand of local communities.

The TDD should not rely only on local administrative departments for implementation and
monitoring; it should also involve NGOs, especially in communities where rigid cultural norms
and customs prevail. NGOs can play a useful role in mobilizing the community for implementing
community-oriented programmes. Activities such as forest conservation and others of similar
nature should be entrusted to the Forest Department.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

34

GR on Implementation of SukthankarCommittee Recommendations

Following the Sukthankar Committee’s recommendations, the Tribal Development Department
of the Government of Maharashtra issued a GR on September 21, 1992.As per the GR, the
amount given to the Tribal Development Department for TSP should be 9 per cent of the total
annual plan of the state, which is in proportion to the tribal population of the state. Following
the Committee’s recommendations, the TSP from the plan funds are handed over to the TDD at
the beginning of the planning exercise. The TSP budget is finalized within the ceiling indicated
by the TDD. The “Maharashtra Pattern” of allocating funds for TSP has received appreciation at
the national level as well.

Considering the fact that tribal villages are often remote, and there is a lack of basic facilities and
high prevalence of extreme poverty in these areas, 75 percent of total TSP fund was to be made
available and used for development programmes in TSP areas; the remaining 25 percent was to be
spent on development programmes for tribal population outside TSP areas.

Capital investments in schemes such as large irrigation projects, large-scale or medium-

scale industries, national and state highways and large bridges should have least priority, the
Sukthankar Committee recommended. Instead, emphasis should be on schemes such as small
irrigation projects, boring (or digging) of wells, soil and water conservation, clean drinking water,
forest conservation, formal and informal general and vocational training, mother and child care
and social welfare, agricultural development schemes as per the needs of tribal population,
and crop husbandry, fruit production, connecting roads, small bridges and cross-drainages, all
schemes which will directly benefit the tribal community.

Dr. Jayant Patil Committee

A review of TSP revealed that the District Planning Committee (DPC) did not provide sufficient
outlays for important sectors/schemes related to nutrition, health, education and employment.
A sub-committee appointed by the planning board under the chairmanship of Dr. Jayant Patil,
a member of the State Planning Board, reached the same conclusion as that of the Sukthankar
Committee. The Committee recommended that some important sectors like welfare of
backward classes, education, health, water supply, power development, roads and irrigation,
which directly benefit the tribal communities, need to be provided with sufficient outlays on
priority.

Following the recommendations of the subcommittee, the state government took a decision
to fix a floor for the minimum percentage of outlay for certain important sectors/schemes. The
minimum allocation recommended were 40 percent for welfare of backward classes (TDD), 17
percent for health, 15 percent for road development, 7 percent for irrigation (including 2 percent
for minor irrigation), 5 percent for education (including technical and ITI education), 3 percent

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 35

for rural water supply, 3 percent for nutrition, 2 percent for power development, 2 percent for
animal husbandry/fisheries and a maximum of 2 percent for Soil conservation (TDD 2013). It
must be noted that a major activity, which is in the purview of welfare of backward classes is
the running of Ashram schools and related programs by the ITDPs. The 5 percent allocation for
education is over and above the allocation made under the head ‘welfare of backward classes’.

Trend in TSP Outlay and Expenditure

Budget documents for various years have been
The Report recommends that the
analysed to know the pattern and trend in the outlay
TSP budget should be not only non-
and expenditure of TSP funds.
divertible, but also non-lapsable.
That is, any unspent amounts shall
Table 4.1 shows year-wise total Plan Outlay and
be allocated next year, over and
Expenditure for Maharashtra, and for the Tribal Sub-Plan
above the proportional allocation
from 1993-94 to 2014-15. It is seen from the Table that, of the next years. Also, the report
since 1993-94, the TSP outlay has been 8 to 9 percent recommends that any budgetary
of the total plan outlay for the state. However, in some cuts in the middle or near the
years, it was slightly less than 8 percent but more than 7 end of the year must not be made
percent. Only in 2004-05was outlay less than 7 percent applicable to the TSP.

(5.5 percent). On the other hand, in 2002-03, the TSP

outlay exceeded 10 percent (10.3 percent). It must be
noted here that the Scheduled Tribes population, as per the censuses of 1981 to 2011, accounted
for about 9 percent, varying between 8.85 and 9.35 percent of the total population of Maharashtra.
While, recently, there is a trend to provide TSP budgets in proportion to the total tribal population,
this was not always the case. Thus, the Kelkar Committee calculated that “since 1994 the tribal people
have been deprived of Rs. 7607 crore of their legitimate share in the budget”. (Page 220, High Level
committee for Balanced Regional Development). The The Kelkar Committee Report
calculation of the backlog is reproduced in Annexure 4.5. calculates that due to indifferent
It can be seen that, in many years, the expenditure was expenditure over the years tribal
not even 5 % and in some years it was even less than 4%. people have been deprived of
Most tragically, the gap between the expected provision Rs 7607 crores of their legitimate
and the actual expenditure amounts to almost one-third share in the budget. It is
recommended that this diversion
of the expected provision at 8.9%. In view of the large gaps
may be treated as injustice and
between STs and others in developmental indicators this
may be made good by allocating
de facto diversion of resources is unpardonable. Hence, additional budgets equal to this
our report recommends that this is a loss to the TSP areas sum over a period of the next 4 to 5
which should be made good over the next 4 to 5 financial financial years.
years.

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While the TSP budget may be in proportion to the percentage of STs in the population, the absolute
amount of TSP expenditure may be also be adversely affected by mid-year or end-of-year budgetary
cuts due to budgetary constraints. These budgetary cuts (which are common) can affect developmental
projects adversely. It is recommended that, in view of the special vulnerabilities of the STs, TSP allocations
must be insulated from across-the-board budgetary cuts.

Trend in Sector-wise TSP Outlays

As mentioned earlier, the TSP outlay has two components −State plan and District plan. While the
state plan outlay is controlled by the TDD at state-level, the district plan outlay is available for the
district-level departments, including the ITDPs, to plan and implement programs. In keeping with
the Sukthankar Committee’s recommendations, at least 60 percent of the TSP outlay is to be made
available for the district plan. Generally, TSP outlays for district plans are made under eight main
sectors/departments, which are Agriculture & Allied Services, Rural Development, Irrigation and
Flood Control, Power Development, Industries & Minerals, Transport, General Economic Services,
and Social & Community Services.
Table 4.1: Year-wise State Plan Outlay, Tribal Sub-Plan Outlay and Tribal Sub-Plan Expenditure,
Maharashtra, 1993-94 to 2013-14
Year Budgetable Outlay for % of State % Annual % Annual TSP Ex- % of TSP
State Outlay TSP Outlay to Increase Increase in penditure Outlay
(Rs in (Rs in TSP in State TSP Outlay (Rs in Expended
crores) crores) Outlay crores)
1993-1994 3284.44 265.00 8.07 NA NA 266.00 100.4
1994-1995 4000.32 330.00 8.25 21.8 24.5 275.00 83.3
1995-1996 5275.80 412.50 7.82 31.9 25.0 412.00 99.9
1996-1997 7520.11 588.58 7.83 42.5 42.7 535.00 90.9
1997-1998 6282.56 550.00 8.75 -16.5 -6.6 498.00 90.5
1998-1999 6400.00 561.00 8.77 1.9 2.0 520.00 92.7
1999-2000 6641.82 580.59 8.74 3.8 3.5 467.00 80.4
2000-2001 5798.00 525.00 9.05 -12.7 -9.6 444.00 84.6
2001-2002 6750.00 567.00 8.40 16.4 8.0 366.77 64.7
2002-2003 5704.04 585.00 10.26 -15.5 3.2 323.42 55.3
2003-2004 7578.38 555.73 7.33 32.9 -5.0 450.22 81.0
2004-2005 9665.25 530.04 5.48 27.5 -4.6 376.46 71.0
2005-2006 11014.03 990.00 8.99 14.0 86.8 928.53 93.8
2006-2007 14829.00 1389.00 9.37 34.6 40.3 1323.04 95.3
2007-2008 20200.00 1798.00 8.90 36.2 29.4 1658.88 92.3
2008-2009 25000.00 1941.50 7.77 23.8 8.0 2027.42 104.4
2009-2010 26000.00 2314.00 8.90 4.0 19.2 2130.01 92.0
2010-2011 37917.00 3374.35 8.90 45.8 45.8 2323.15 68.8
2011-2012 41000.00 3693.50 9.01 8.1 9.5 3106.00 84.1
2012-2013 45000.00 4005.00 8.90 9.8 8.4 3401.00 84.9
2013-2014 46838.00 4177.48 8.92 4.1 4.3 3979.42 95.3
2014-2015 51222.54 4814.92 9.40 9.4 15.3 - -
Source: Annual Tribal Sub-Plan 2013-14; Tribal Development Department, Government of Maharashtra; p.4.

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It may also be noted here that, of the total TSP plan outlay, about 60-70 percent is allocated
to the Social and Community Services sector (state and district plans combined). This sector
includes a variety of sub-sectors such as welfare of backward classes, public health and nutrition,
housing, general and technical education, arts, culture and sports. In addition to the eight
sectors mentioned above, some amount is also allocated for programmes such as special area
programmes, Khandesh Package, welfare of backward classes under SSA and Article 275(1), and
certain lump sum allocations.

Sub-sector Outlays
An attempt is made here to identify the significant Budgetary commitments for
sub-sector programmes/schemes and the trends in the nutrition and health are less
outlays to these sectors in the past five years. For this than what is specified in the
purpose, we identified the sub-schemes that received Government resolution (15% and
3% respectively). Commitments
at least 1 percent of the TSP outlay in any one year
for building upon the gains of
since 2009-10, either in the state plan or in the district
forest rights act is not seen from
plan. In Table 4.2 all sub-sectors that received at least
the budget documents. Lack of
1 percent of the total state plan or district plan in any sufficient allocation for soil and
one year during 2009-10 to 2013-14 are listed along water conservation despite the
with the percentage of total TSP outlay and percentage poor quality of land the tribal
of district plan outlay received by them. It needs to be communities traditionally inhabit.
noted that in the table, the column total need not add
to 100 due to the fact that insignificant sub-sectors (in terms of allocation of funds) are not
listed. The TSP outlay for all sub-sectors under the State plan and the District plan for 2013-14 is
presented in Appendix 4.1.

It can be seen from the Table that, although the allocations for welfare of backward class is as
per the recommendations of the TDD, for most of the other sub-sectors, the allocations have
been below the recommended level specified by the Tribal Development Department. It was
observed that some of the important sectors that have direct impact on the quality of life of
the tribal people have not been receiving allocations in the recommended (by the TDD for
the district TSP plans)proportion. Considering the low human development indicators among
the STs, public health, nutrition, and rural water supply should have received funds on priority
in the district TSP plans but, as observed from the Table, allocations for Public Health have
been nowhere near the 15% of the district TSP outlay as was suggested by the TDD. Similarly,
allocations for nutrition were less than3%. Rural Development and forests were similarly
neglected areas. Under the heads of ‘Forests’ there are no schemes to support Forest Rights Act,
itself a landmark piece of legislation. Similarly, while land quality and lack of irrigation facilities
are concerns within the TSP areas, the allocations for irrigation remain low.

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Table 4.2: Year-wise Percentage Distribution of TSP Outlay for the State as a whole and TSP Outlay for
District Plan by significant sub sector, Maharashtra, 2009-10 to 2013-14
Significant % distribution of TSP outlay (Total) % of TSP outlay for District Plan
Sub-sectors
2009- 2010- 2011- 2012- 2013- 2009- 2010- 2011- 2012- 2013-
10 11 12 13 14 10 11 12 13 14
Welfare of Backward 45.1 39.3 50.1 56.0 52.3 45.6 38.4 41.7 41.7 43.3
Class (TDD.)
Road Development 13.7 6.0 8.7 9.0 10.6 14.7 9.5 12.0 12.0 10.1
(PWD)
Jawahar Rozgar 2.1 7.4 4.9 5.2 6.0 3.6 13.9 9.1 9.4 10.4
Yojana
Public Health 5.6 3.3 4.8 4.9 5.8 10.9 10.3 8.4 8.1 9.5
Minor Irrigation 5.8 2.6 1.3 2.2 2.0 0.7 0.7 1.0 0.8 0.8
(State Irrigation
Dept)
Labour & Labour 2.8 1.1 2.1 1.9 1.7 4.3 3.5 3.4 3.1 2.7
Welfare
Rural Electrification 1.5 1.1 1.8 1.9 1.9 2.6 3.0 3.3 3.2 3.1
(EE & I Dept)
Forest 1.4 0.5 1.2 2.4 2.3 1.1 1.3 2.3 2.1 2.4
Nutrition 1.1 1.2 1.9 2.3 0.9 1.2 1.4 1.3 1.9 0.1
Crop Husbandry 1.3 0.7 1.2 1.8 1.8 1.8 2.2 2.1 2.3 2.5
Rural Water Supply 1.7 1.0 1.4 1.1 1.3 2.9 2.7 2.6 2.0 2.2
(RDD)
Soil and Water Con- 0.8 0.6 0.9 1.3 1.3 1.6 1.9 1.7 2.1 1.9
servation
Special Area Pro- 1.9 1.3 0.7 - - - - - - -
gramme
Khandesh Package - - 2.1 - - - - - - -
Construction of - - - - 1.2 - - - - 1.4
Anganwadis
Welfare of B.C.(TDD) 2.7 - - - - - - - - -
S.S.A.
Development 2.4 - - - - - - - - -
Schemes for Naxal-
ite –affected Areas
Lump sum (Budg- - 18.1 4.7 - 2.4 - - - - -
eted)
Undivided Fund - 10.5 4.4 0.5 - - - - - -
Total Outlay (in 2314.0 3374.4 3693.5 4005.0 4177.5 1155.5 1068.0 1993.2 2216.1 2403.0
crores)
Note: All sub-sectors that received at least 1% of total state plan or district plan in any one year during 2009-10
to 2013-14 are listed in this table. ‘-’ means no outlay; No breakup was available for ‘ Lump sum Budget’ and ‘
Undivided Fund’

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District-wise TSP / and OTSP Outlays

Since most of the districts with high concentration of tribal population are located in the region
defined as Rest of Maharashtra, almost 62% of the funds are diverted to these areas. Some of
these districts with more than 10% tribal population are Nandurbar, Nashik and Thane. Thus it
may be observed from Appendix 4.2 that the three districts together received nearly48% of the
TSP outlay during the FY 2013-14.

Almost a quarter of the tribal people live in Vidarbha. This region received almost a third of the
total TSP outlay during FY 2013-14. The districts with prominent tribal presence in this region
are Gadchiroli, Gondia, Yavatmal, Nagpur, Amravati and Chandrapur. Among the three regions
of Maharashtra, Marathwada has lowest number of ST households, with only 3% of the total ST
population of the State living in the region. Of the 8 districts in this region, Nanded is the only
district with a defined TSP area. The other districts receive OTSP funds. The region received 4%
of the total TSP funds in the FY 2013-14.

Re-appropriation of District TSP funds

One of the drawbacks of the Tribal sub-Plan financial architecture is that while the general district
plan has separate district codes for each district, a similar facility is not extended to the district
tribal sub-plans. This creates problems when re-appropriation in the district budgets has to be
done in the third or fourth quarter of the year. Thus, while the powers of re-appropriation are in
practice with the DPC, because of the lack of codes all re-appropriation proposals are pooled back
to State-level and are re-sanctioned. This leads to unnecessary delays and also compromises the
independence of the DPCs. The lack of codes also leads to problems in maintenance of separate
district wise books. This report recommends that each district be assigned a separate code akin
similar to the codes given to each district in the district general plan.

Table 4.3: Budget and Expenditure from TSP of Four Selected Districts during the year 2013-14 (figures in
lakhs of rupees)

Sample Districts Outlay BDS Total % Expenditure % Expenditure

Budget Expenditure out of Outlay out of BDS
budget

Thane 39979.09 NA 39552.65 98.9 DNA

Nandurbar 33776.02 31705.35 31253.29 92.5 98.6

Amravati 9802.58 NA 8579.28 87.5 DNA

Chandrapur 12611.84 12491.59 11666.84 92.5 93.4

Total (4 districts) 96169.53 44196.94 91052.06 94.7 DNA

DNA - Data not available; Data obtained from the sample ITDPs but refer to the respective districts. Head/sub-
head-wise data are not presented because the items did not match with the individual ITDP figures.

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Expenditure in the Four Selected ITDPs

Of late, TSP funds are disbursed through BDS. This is an online system used to allocate funds,
monitor expenditure, and reallocate funds. Table 4.3 gives the initial budget outlay, BDS budget
after re-appropriation and the expenditure by the districts during the FY 2013-14 (the figures
are based on the report of the respective ITDPs). Information received from the ITDPs could not
be put in a common format and hence, only summary information is presented in Table 3.4.
Further, the information received and presented in the Table is for the whole district and not
specific to the ITDP. It can be seen from the Table that the (initial) outlay and the BDS budget
differed, slightly to substantially, for the different districts. The BDS budget is either increased
or decreased due to the surrender and re-appropriation of funds, which is a dynamic process.
Therefore, in the case of BDS budget, the expenditure is more than 90 percent for most of the
selected districts. It is on this basis that ITDPs often claim that they fully meet their expenditure
targets.

Nucleus Budget
Nucleus Budget is meant to meet the local requirements and decided by the PO, ITDPs subject
to specified approvals. The Nucleus Budget is planned in advance (in the previous year itself )
and funds are allocated - like in any other TSP scheme — as standard practice. As per the budget
and expenditure statements received from the ITDPs, the Nucleus Budget has three divisions:
(A) Income Generation Activities, (B) Skill Development Programmes and (C) Human Resource
Development Schemes.

The activities included are pottery work, setting up flour mills, providing agricultural equipment
like threshers, pumps and sprinklers, nursery development, handicrafts, driving classes, Marathi/
English typing, subsidies for two-wheelers, Ashramshala teachers’ training, awareness creation
programmes, etc. The nucleus budget of the four selected districts is given in Appendix 4.4a to
4.4d. As there was no uniformity in the information on the budget and expenditure, we could
not calculate the percentage expenditure for the ITDPs. However, it appeared from personal
interviews that expenditure was close to hundred percent.

Composition of District TSP

In the previous section we discussed the allocation of district TSP funds to various sectors. It can
be seen that and a substantial portion is spent on social and community services. Represented
here is the District TSP Plan for one district Nandurbar to help arrive at a better understanding
of these allocations. We can observe that almost 70% of the district TSP funds are allocated to
four departments, i.e. Tribal Development, Public health, Public Works, and Rural Development
departments (Table 4.4). A further disaggregation of this data shows that a significant portion
of these allocations are spent on construction activities by these departments.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 41

Table 4.4: Department-wise District TSP Plan Outlay for Nandurbar District for the last 3 years

(Rs. Lakh)

S. Department Name District Plan Total Outlay %

No.
2012-13 2013-14 2014-15 2012-13 2013-14 2014-15

1 Tribal Development 13892 12078 15012 42.9 36.4 41.7

2 Public Health 2075 4629 4006 6.4 14.0 11.1

3 Public Works – Roads 3042 3006 3354 9.4 9.1 9.3

4 Rural Development 1827 2912 2798 5.6 8.8 7.8

5 Water Conservation 3031 2707 2310 9.4 8.2 6.4

6 Technical Education 2137 1803 2012 6.6 5.4 5.6

7 Energy 1216 1202 1342 3.8 3.6 3.7

8 Agriculture 912 986 1091 2.8 3.0 3.0

9 Forest 912 902 902 2.8 2.7 2.5

10 Water Resources 88 0 708 0.3 0.0 2.0

11 Women and Child Develop- 1112 937 650 3.4 2.8 1.8
ment

12 Water Supply and Sanita- 1148 797 620 3.5 2.4 1.7
tion

13 Urban Development 150 357 562 0.5 1.1 1.6

14 Animal Husbandry, Dairy 305 186 375 0.9 0.6 1.0

Development and Fisheries

15 Sports 265 361 128 0.8 1.1 0.4

16 Co-operation 272 288 103 0.8 0.9 0.3

17 Industry 2 2 3 0.0 0.0 0.0

18 Publicity 5 5 0 0.0 0.0 0.0

  District Plan Total 32392 33155 35975 100 100 100

Source: compiled from District TSP Plan Outlay of Nandurbar District as given in: https://mahades.maharashtra.
gov.in/MPSIMS

For example, as much as 70% of the outlay of Tribal development department for the district
TSP for the FY 2014-15 was allocated for activities related to construction of Ashramshala
complexes, hostel building and their maintenance, etc. (Table 4.5). Allocations for Public Health,
which also undertakes significant construction-related work with TSP funds, are discussed in the
next section

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42

Infrastructure, supported by adequately compensated skilled and dedicated manpower,

are fundamental for development and effective service delivery. It goes without saying that
funds are necessary for this purpose. However, our contention is that these are activities
that can be undertaken through the general budget as well. The use of the additional TSP
funds for such infrastructure activities is against the underlying principles of TSP funds
usage. It only shows that the TSP continues to be a departmental exercise with least regard
to local needs.

Table 4.5: Nandurbar District TSP Plan Outlay of Tribal Development Department on items that have
Budget Allocations of more than Rs 10 crore for FY 2014-15

(Rs crore)

Item Outlay

Construction of Ashramshala Complexes 48.3

Opening & maintenance of Govt. Hostels for ST Boys & Girls  14.3

Construction of Hostel Building for ST Boys and Girls 19.7

Thakkar Bappa Tribal Village Integrated Improvement Programme 27.6

Golden Jubilee Scheme of scholarship to pre-matric tribal students 13.0

Total 122.947

Total District TSP Plan Outlay on Tribal Development 150.1

Outlay on selected schemes as % of total District TSP Plan outlay on Tribal Development 82%

Source: compiled from District TSP Plan Outlay of Nandurbar District as given in: https://mahades.maharashtra.
gov.in/MPSIMS

Depth and Diversity of the District Tribal sub-Plan

The District Tribal sub-Plan must take into account the sheer variety of the needs of various
constituents in the districts as also the needs of the various sectors. At the same time, it has to
address itself to the requirements of additional funds. We will look through the lens of a few
schemes in a few sectors to understand whether the TSP district Plan has sufficient depth and
breadth, and whether they adhere to the TSP requirements.

Health
Access to health services is one of the primary concerns of the STs and health events are one
of the main reasons a family that is just above the poverty line descends quickly into poverty.

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 43

In the District Plan of Nandurbar for the Planning Year 2014-15 we find that the Public health
department has allocated funds for 24 schemes with a total outlay
Important sectors such
of Rs 40.05 crores. Of these almost Rs 28 crores are for various
as health, nutrition,
construction- related activities (Repairs and Maintenance of Rural
fisheries, minor forest
Hospital, Construction of Rural hospital, Construction of PHC, etc.) produce, agriculture
(Table 4.6). For want of information on whether these constructions lack depth and diversity.
are to accord for certain special normative interventions, it is safe
to assume that funds from the TSP budget is being in lieu of funds
from the general budget at State and District levels. Financing these schemes through the TSP
ensures that less money is available for qualitative interventions for health care of tribals. In fact,
the only significant intervention above Rs 1 crore that passes muster in the district tribal sub-
plan, and appears to be designed to address the specific needs of the tribal areas, is the one for
providing special health services in sensitive tribal areas. The allocation to this scheme was Rs.
3.86 crores for the FY 2014-15.

Table 4.6: Nandurbar District TSP Plan Outlay of Public Health Department on items that have Budget
Allocations of more than Rs 1 crore for FY 2014-15

(Rs crore)

Item Outlay

Increase grants to Rural Hospitals for medicines 1.3

Establishment of Rural Hospitals 1.0

Construction of PHC 6.7

Construction of Rural Hospitals 10.0

Repairs and Maintenance of Rural Hospitals 10.0

Total 29.0

Total District TSP Plan Outlay on Public Health 40.06

Outlay on above schemes as % of total District TSP Plan outlay on Public Health 72%

Source: compiled from District TSP Plan Outlay of Nandurbar District as given in: https://mahades.mahar-
ashtra.gov.in/MPSIMS

Besides curative health, there is also a need to promote activities that lead to healthy life. We
found that the maternal and child health indicators among the STs to be not very encouraging.
For instance, only 11 percent of ST children between the ages 12-23 months were fully immunised
in Nandurbar district. Very few tribal women (only 15%) in the district had institutional delivery.
In fact, only a third of the tribal women in the State have institutional deliveries and about
40% have safe deliveries, i.e. they either have institutional delivery or have the help of either

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

44

paramedic or a trained Dai (midwife). Studies have pointed out that inadequate care of women
during pre- and post-pregnancy, and of the child during the growth period have an adverse
impact on the mental and physical development of the child. This also has an impact on the
future abilities of the child. There is thus a need for substantial and purposive investments to
improve access to preventive medical care. While NRHM has a number of such activities but,
because of the poor access to a health centre and limited mobility of ASHA worker, ANM or an
AWW, women and children living in remote areas are unable to benefit from these facilities and
services. The funds from the TSP, therefore, can be used for improving access and for initiating
activities/facilities that have not been hitherto covered under existing schemes.

Considering the remoteness of tribal settlements, geographical challenges, and local social
situation, more schemes designed to supplement the NRHM or address specific situations are
necessary. There is also a need to examine whether, despite the fiscal flexibility that the large
health budget allows (the allocation for health in TSP plus the allocation from NRHM),the health
system is providing for support in the form of additional human resources, more health care
institutions and facilities, and reduced “time to care”. It also needs to be examined how the
health-seeking behaviours of expectant mothers and adolescent girls can be improved with
suitable incentives.

Nutrition
It is mandated that at least 3 % of the district TSP should be set aside for the nutrition components.
The problem of malnutrition is a significant cause for worry in the areas. However, on examining
the budgets of most districts we found only two heads – Nutrition and Mahila Bal Kalyan Samiti–
tried to address the matter. The nutrition component at present does not provide for additional
food in high burden areas. We were told that Anganwadi construction was the only activity being
carried out with TSP funds. Considering the extent of the problem, a range of interventions to
take care of additional nutritional needs could have been undertaken such as provision for at least
one daily meal to expectant mothers and adolescent girls, crèches, provision for extra helpers for
immunization drives, and for early child care education, BCC/IEC campaigns, etc. Moreover, we
found that the districts often provide less than the minimum 3 % that is mandated for nutrition.
Nandurbar, an area that is particularly nutrition-deficient was allocated less than 2 % of its entire
district TSP in the year 2014-15.

Fisheries
TSP districts, especially in Eastern Vidarbha, have great potential for decentralized fishery activities.
Considering that PESA vests ownership of minor water bodies with the Gram Panchayats, there
is scope to support fishery activities through the TSP. However, for the year 2014-15, the total
allocation for fisheries under TSP in Gondia was only Rs. 5 lakhs. For the district of Gadchiroli the

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 45

amount allocated was just Rs. 50,000. We learnt that the issue of limited allocation is also linked
to weak departmental structures wherein staffing patterns and less manpower ensure that the
department has little interest in seeking funds. Clearly, such a situation is not conducive to the
generation of livelihood in tribal areas. A similar case of few schemes and poor absorption was
also seen in the allied field of animal husbandry.

Rural Development
A similar lack of diversity was seen in the RDD schemes for TSP. There are just 4 schemes
in the RDD for district TSP. From these, a portion of the funds is set aside for IAY to provide
for matching grant to the central housing scheme. Some funds are reserved for developing
pilgrimage centres and crematoriums. Clearly, the department needs to envisage a broader
role for itself, especially since a number of rights under the PESA (for the implementation
of which it is the nodal department) have been given to scheduled areas. A number of
interventions aimed at livelihood creation, village improvement, reforestation, etc. can be
initiated by the department.

Agriculture
Agriculture in the district TSP plan is also a neglected area. Thus, Thane, a district with vast
patches of degraded land has only 2 schemes for agricultural development.

Similar failures to achieve depth and diversity, and to strictly apply additional funds, play out in
many other schemes such as those for water resources, forests, etc. As pointed out elsewhere
in this report, there is hardly an attempt to align the TSP with such Rights-based legislations as
PESA, FRA, MGNREGA, etc.

Issues and suggestions

1. Towards a “Problem-Share” Approach

We have seen in the earlier sections that there remains a significant gap between the
developmental indicators of the STs vis-à-vis the general population. This gap is likely to remain if
more resources are not committed towards bridging it. Hence, this report strongly recommends
that funding for TSP at state level should be based not on the “population-share” approach as
is the present practice, but on a “problem-share” approach, which was recommended by the
National Commission of Scheduled Tribes to the Planning Commission. The extent of the
problem-share can be calculated from the extent to which the STs lag behind the non-ST
population for a given indicator (malnutrition, to give an example). The extent of lag can be
given a suitable weight. A combination of such weights can be used to help arrive at a problem-
share which, in the present situation, will have more weight than population-share.

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46

The need for a think tank to examine and suggest schemes

There is a need for TSP to expand its scope and related interventions. Regular points of
interaction between the TDD and other departments need to be established, and supplemented
by inputs from a think-tank to ensure that the TSP schemes confirm and address to the variety
of additional needs. The back-end of this think tank needs to be with the TDD, but should
include experts from all those sectors which the TSP covers. The think-tank should be able
to provide to the districts and to the departments suggestions by the June of the ensuing
Financial Year. District development Reports/Yearly reviews of TSP districts will be helpful
for this. Also, Tribal Department may consider establishing District Planning and Monitoring
Units as a back-end to help the Collector and the DPC in Planning and monitoring the TSP.

2. A legal framework for TSP

It also needs to be pointed out that the present allocations to

Feedback from the field
TSP (in proportion to the ST population) are not based on any indicate that the ceilings
legal mandate but merely a consensus. In order to ensure that and floors are rather rigid
this consensus is not disturbed, it has to be backed by suitable as they do not take into
laws. Legislation is necessary to protect budgetary allocations account the diversity in
for STs and to make them non-divertible and non-lapsable. the TSP districts. The one-

There is already in existence such legislation. Andhra Pradesh size-fits-all approach has
serious shortcomings and
has implemented an Act called the Andhra Pradesh Scheduled
needs to be addressed. It is
Castes sub-plan and Tribal sub-plan (Planning, Allocation
recommended that the core
and Utilisation of Financial Resources) Act, 2013, which has and non-core differentiation
a number of such provisions. The Maharashtra Government be retained, but the present
must also consider introducing a similar legislation to protect system of floors and ceilings
the budgetary allocations in TSP. should be done away with.

3. Ceilings given for preparation of District TSP Plan

There has been a continuous feedback from the districts that the ceilings and floors given by
the Tribal Development Department, which are applied in the formulation of district TSP plans,
are rigid. The formula is repeated almost every year and does not take into account the diversity
among the TSP districts. Thus, while districts in Eastern Vidarbha may have need for larger
budgetary resources for fisheries and for ensuring better access to natural resources, Nandurbar
district may have a greater need of strategies for land improvement, halting migration, and
ensuring livelihood support. The one-size-fits-all approach has serious shortcomings and needs
to be addressed. It is, therefore, recommended that while the core and non-core differentiation
(as is present in the district general plan) should be retained, the present system of floors and
ceilings should be done away with. This will help the districts to choose their (optimum) path to

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 47

Who really “Owns” the TSP?

The lack of depth and breadth of scope of the programs seems to arise partially out of an
unwillingness of the departments to own the Tribal sub-Plan and which they have to focus
on. This arises out of the fact that for most departments TSP is a very small part of their entire
outlay, which is made up from various sources such as the general plan, CSS, etc. Hence,
while the TSP has been successful in creating a non-divertible structure “owned” by the TDD,
its success in involving departments into doing a greater gap analysis with special focus on
tribal areas, and consequent Planning has been limited. One of the weaknesses of TSP has also
to do with the fact that there is no professional Planning and Management Unit which can
help the State Unit and the District units to plan for the TSP based on relevant inputs.

development. Considering that the DPC is chaired by a minister, ensuring flexibility in decision
making should not be a difficult task. Considering also that TSP was intended to be a plan that
is based on participation, strict application of percentages result in a system of command and
control rather than one of need-based planning, which should be avoided .

Andhra Pradesh Scheduled Castes sub-plan and Tribal sub-plan (Planning, Allocation
and Utilisation of Financial Resources) Act, 2013

Salient features of the Act:

1. Earmarking of funds in proportion to the ST population.
2. Lays down guidelines for processes for Appraisal, Allocation, and Approval of the sub-
Plans
3. Lays down the guidelines for Processes of Budget Release
4. Provides for Institutional arrangements for Planning and Monitoring including a State
Council to advise the State Government on the TSP and to approve the TSP
5. Mandates Analysis of Outcomes and of improvements in HDI by the Nodal agency (Tribal
Welfare Department )
6. Administrative support including a Sub-Plan Support Unit.
7. Provision for incentives and penalties for discharge of responsibilities under the Act
8. Placing of Annual report before the legislature.

TSP, PESA and Gram Sabha

In Maharashtra State there are 59 Talukas in 13 Districts that are in the Scheduled Areas, The
Panchayats Extension to Scheduled Areas Act was passed in 1996 and was intended
to give to the Gram Panchayats in Scheduled Areas a large measure of self-governance,
decentralisation and devolution. A number of its provisions regarding the powers of Gram
Sabhas and Panchayats over minor minerals, prevent land alienation, power to regulate
intoxicants, etc. are significant. However, for the purpose of this paper certain specific

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

48

provisions of PESA are relevant. These provisions are related to Sections 4 (m) (vi) and 4(m)
(vii) of the Act which empower Gram Sabhas and appropriate Panchayats to have control
over institutions and functionaries in all social sectors and over local Plans and resources
including the Tribal Sub-Plan. PESA was legislated in 1996, and state governments were
given the mandate to customize the rules and regulations on their own for the scheduled
areas. In Maharashtra, the rules and regulations were issued in March 2014. TSP must be
examined vis-a-vis PESA on the following benchmarks:-

1. Is the planning process for TSP in accordance with Section 4(m) vii of the Act, i.e.,
does TSP provide for control of the Panchayati Raj structure and the Gram Sabhas
over the planning process?

It was observed that the present planning process for the district TSP does not involve
the Gram Sabhas, Gram Panchayats and Panchayat Samitis. Even at the level of the apex
Panchayat, which is the Zilla Parishad, the demands are made through the ZP departments
and not arrived at through a deliberative exercise done with the participation of the Zilla
Parishad General Body. This lack of participative planning at all levels is one of the main
reasons of the gap between the aspirations of STs and service delivery. The schemes need
to address these aspirations.

2. Are the schemes of the TSP being largely run by the Panchayati Raj structure as
required by PESA?

The answer to this is largely no. As of now most of the Tribal Development Department
programs are being implemented by either the PO ITDP structure, or through the line
departments. (A number of schemes in health, education, nutrition, housing, and, water
conservation are run by the Zilla Parishad as an agency.)

Considering that both PO ITDP structure and line departments are not directly responsible
to the people, the goal Panchayati Raj control over resources and institutions, as envisaged
in PESA, is largely defeated.

3. Are schemes/projects being approved by the Gram Sabhas and are beneficiaries
being selected by the Gram Sabhas?

Here, the picture is mixed. Selection of beneficiaries by the Gram Sabha is done mostly for
TSP schemes which are run by the Zilla Parishad and which have provisions for beneficiary
selection within the guidelines. However, for most of the TDD schemes, and schemes being
operated by other line departments, this was not seen. Nor were the schemes/projects
being approved by the Gram Sabhas. We learnt that, in a recent GR, the TDD has mandated

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 49

Participatory Micro-Planning

Participatory micro-planning is one way to ensure that the ultimate beneficiaries — the
grassroots participants in democracy — have a stake in deciding what development intervention
is appropriate for them. The village/ hamlet would be the ideal unit to decide what its
priorities are and the weight that must be attached to each priority. The final budgeting and
outlays should be decided based on this feedback. While structures such as DPC and ZP have
representative voices that may convey the needs of the people to the planning authorities,
these representative voices may not be close enough to the grassroots to articulate local needs.
Hence, through various participative and mobilisation exercises, the village itself can choose
what it feels is good for them. Since tribal areas are often remote, and characterised by cultural
diversity, it is all the more necessary to take into account what the people want.

that the Gram Sabha should select beneficiaries for all individual beneficiary schemes. It is
yet to be seen whether this GR is translated into practice in letter and in spirit.

In view of the above, it is necessary to initiate ownership of the plans in the following
manner:

a) Initiate micro-planning in each village so as to ensure that the district TSP plans incorporate
the felt needs of the Gram Sabhas.

b) Bring about greater involvement of representatives of all three layers of Panchayati Raj in
the TSP approval process.

c) Allow greater devolution from the TSP budget to the four layers of Panchayati Raj (Gram
Sabha included), including untied funds.

Participation of people and officials

The FGD participants (male and female) from the selected villages were near-unanimous in their
assertion that they had not participated in the Gram Sabha meetings and were not aware of

Some important provisions of State PESA Rules with regard to TSP and delivery of schemes
of TDD
1. The scattered hamlets can become villages and have their own Gram Sabhas.
2. Provision of an independent “own fund” of the Gram Sabha called the Gram Sabha Kosh
with full control of the Gram Sabha over financial decisions.
3. Identification of beneficiaries by the Gram Sabha.
4. Approval of programs and projects to be executed by the Panchayat by the Gram Sabha.
5. Review of all social sector institutions by the Gram Sabha.
6. Social audit by the Gram Sabha.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

50

the special powers given under PESA to the Gram Sabhas. Most women FGD participants from
all sample villages reiterated that they had not attended any Gram Sabha meetings and also
that they did not get any information or message regarding the Gram Sabha meetings and the
decisions taken in them. The field teams have seen that many tribal villages/hamlets/padas were
at some distance from the Gram Panchayat offices and it was not convenient for them to attend
the Gram Sabha meetings unless they were directly useful to them. They (the respondents) felt
that even if they were informed or invited, they would prefer not to lose a work day to attend the
meeting. Women participants said that no special Mahila Gram Sabha had been organized in the
recent past. When the Sarpanch and Gram Sevak were asked about this, they said that though
they did call the villagers to the Gram Sabha meetings, very few attended. Most community
leaders insisted that Gram Sabhas were organized on a regular basis, but villagers do not attend,
especially women.

On being asked about the involvement of ITDP functionaries in the Gram Sabha activities,
the villagers as well as the Gram Sabha functionaries asserted that these officials were rarely
involved. Discussions with ITDP functionaries also confirmed this. As such, to the extent the
study team’s investigations could gather, the linkage of the TSP to the requirements of PESA,
and the administrative and financial arrangements for achieving the mandate of PESA has not
happened in the study areas 

Is the TSP responsive to ensuring delivery of Rights based interventions to the STs?
The past two decades have seen the enactment of several Rights-based legislation to ensure
justice to the backward segments of society. The MGNREGA (guaranteeing Right to Work), PESA

As far as the TSP budgetary perspective is concerned TSP does not provide for control of the
Panchayati Raj structure and the Gram Sabhas over the planning process. However, there
are certain transfers for certain schemes in which Zilla Parishad are the administrative and
implementing departments. It is necessary to initiate ownership of the plans in the following
fashions: (i) Initiating micro-planning in each village to ensure that the district TSP plans
incorporate the felt needs of the Gram Sabhas, (ii) Greater involvement of representatives of
all three layers of Panchayati Raj in approval of TSP and (iii) Greater devolution to the four
layers of Panchayati Raj (Gram Sabha included) from the TSP budget including provisions for
untied funds.

(the Right to self-governance of Panchayats in Scheduled Areas), and the Scheduled Tribes and
Other Traditional Forest Dwellers (Recognition of Forest Rights Act), 2006 (which recognizes
the right to access forests and other natural resources) are widely regarded as the three most
important rights-based legislations which have the potential to impact positively the livelihood
concerns of the tribal population. These rights-based legislations address the three issues which

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 51

A few possible TSP interventions for Rights based legislations

1. Providing credit and other support to IFR beneficiaries for land improvement.

2. Provision of seed capital to Communities for value-added structures, market linkages,

operation purposes, etc.

3. Supporting Gram sabhas for identifying of land alienation, training in forestry, for
communitisation of institutions (not clear what this means), establishment of fisher-ies,
and management of natural resources as identified in PESA.

4. Provision of additional wages, and administrative support for easier payment (payment of
what) options.

have long affected STs adversely – a high migration rate in many areas, denial of access to forest
and other resources, and lack of a decentralized structure of governance which would allow for
self – governance through customary structures that have been in existence for a long period
of time.

We observed from field interactions that though these rights have been claimed by the people,
budgetary support still needed to ensure that these rights do not remain on paper. Thus, for
example, there is no scheme as yet to ensure funding for Individual Forest Rights beneficiaries
under the Forest Rights Act. Similarly, once Community Forest Rights are granted under the FRA,
there would be a need to develop value-added and hand-holding structures such as localized
food processing units, and to develop market linkages for disposal of produce. However, the TSP
budget at both district and state level does not provide for such needs despite the Act being in
operation for more than 8 years.

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Appendix 4.1: Sub-sector-wise TSP Outlay for State and District Plans, Maharashtra,2013-14

S. Sector and Sub-sector (Figures in lakh) % distribution % outlay

No. State District Total State District Total to district
 
1 Agriculture & Allied Services 7202.00 19316.28 26518.28 4.06 8.04 6.35 72.8
Crop Husbandry 1500.00 6098.99 7598.99 0.85 2.54 1.82 80.3
Horticulture 0.00 304.11 304.11 0.00 0.13 0.07 100.0
Soil and Water Conservation (Rural Development) 595.00 4655.92 5250.92 0.34 1.94 1.26 88.7
Total Soil and Water Conservation 595.00 4655.92 5250.92 0.34 1.94 1.26 88.7
Animal Husbandry 1100.00 1605.34 2705.34 0.62 0.67 0.65 59.3
Fisheries 0.00 114.51 114.51 0.00 0.05 0.03 100.0
Forest 4000.00 5808.94 9808.94 2.25 2.42 2.35 59.2
Co-operation 7.00 728.47 735.47 0.00 0.30 0.18 99.0

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

2 Rural Development 2176.51 26378.87 28555.38 1.23 10.98 6.84 92.4
Swarna Jayanti Gram Swarozgar Yojana 2176.51 81.70 2258.21 1.23 0.03 0.54 3.6
Drought Prone Area Programme 0.00 2.00 2.00 0.00 0.00 0.00 100.0
Jawahar Rozgar Yojana (Indira Awaas Yojana) 0.00 24887.95 24887.95 0.00 10.36 5.96 100.0
Community Development (Rural Development) 0.00 897.13 897.13 0.00 0.37 0.21 100.0
Rural Sanitation Programme 0.00 510.09 510.09 0.00 0.21 0.12 100.0
3 Irrigation and Flood Control 9500.00 14042.31 23542.31 5.35 5.84 5.64 59.6
Minor Irrigation (Corporation) 2010.11 0.00 2010.11 1.13 0.00 0.48 0.0
Irrigation (Irrigation Department) 6489.89 1969.00 8458.89 3.66 0.82 2.02 23.3
Minor Irrigation Project (Local Sector) (R.D.D) 500.00 8883.46 9383.46 0.28 3.70 2.25 94.7
Minor Irrigation Project (Local Sector) (Water Conservation Dept) 500.00 3189.85 3689.85 0.28 1.33 0.88 86.4
4  Power Development 800.00 7489.06 8289.06 0.45 3.12 1.98 90.3
Rural Electrification 300.00 7489.06 7789.06 0.17 3.12 1.86 96.1
Non-Conservation Energy 500.00 0.00 500.00 0.28 0.00 0.12 0.0
5  Industry & Minerals 0.00 117.31 117.31 0.00 0.05 0.03 100.0
Villages & Small Industries (Industries) 0.00 117.31 117.31 0.00 0.05 0.03 100.0
 S. Sector and Sub-sector (Figures in lakh) % distribution % outlay
No. State District Total State District Total to district
 
6 Transport 20500.00 24200.28 44700.28 11.55 10.07 10.70 54.1
Roads and Bridges 20000.00 24200.28 44200.08 11.27 10.07 10.58 54.8
Home-Transport 500.00 0.00 500.00 0.28 0.00 0.12 0.0
7 General Economic Services 0.00 797.47 797.47 0.00 0.33 0.19 100.0
Forest Tourism 0.00 797.47 797.47 0.00 0.33 0.19 100.0
8  Social & Community Services 127269.49 147958.42 275227.91 71.72 61.57 65.88 53.8
General Education 3403.93 26.33 3430.26 1.92 0.01 0.82 0.8
Technical Education 0.00 2033.84 2033.84 0.00 0.85 0.49 100.0
Sports & Youth Welfare 0.00 1720.66 1720.66 0.00 0.72 0.41 100.0
Medical Education 0.00 160.00 160.00 0.00 0.07 0.04 100.0
Higher Education 1500.00 0.00 1500.00 0.85 0.00 0.36 0.0
Public Health 1500.00 22933.10 24433.10 0.85 9.54 5.85 93.9
Rural Water Supply & Sanitation 0.00 5292.79 5292.79 0.00 2.20 1.27 100.0
Urban Development 600.00 424.27 1024.27 0.34 0.18 0.25 41.4
Information &Publicity 0.00 10.02 10.02 0.00 0.00 0.00 100.0
Tribal Development Department 114465.56 104061.23 218526.79 64.51 43.30 52.31 47.6
Labour & Labour Welfare (Higher Education Dept) 800.00 6484.75 7284.75 0.45 2.70 1.74 89.0
Total Labour & Labour Welfare 800.00 6484.75 7284.75 0.45 2.70 1.74 89.0
Women & Child Development 5000.00 4811.43 9811.43 2.82 2.00 2.35 49.0
A. Social Welfare Department (WCD) 0.00 1020.74 1020.74 0.00 0.42 0.24 100.0
B. Nutrition 3500.00 358.11 3858.11 1.97 0.15 0.92 9.3
C. Construction of Anganwadis 1500.00 3432.58 4932.58 0.85 1.43 1.18 69.6
Lump sum Budgeted Outlay 10000.00 0.00 10000.00 5.64 0.00 2.39 0.0
Total Tribal Sub-Plan 177448.0 240300.0 417748.0 100.0 100.0 100.0 57.5
53

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54

Appendix 4.2: Development Board-wise and District-wise break-up of District Plan Outlay (for Sectors 1-8
combined) for TSP and OTSP Areas, 2013-14

Board/District Sectors 1-8 (in crores) % distribution sectors 1-8 %TSP TSP Population*
TSP OTSP Total TSP OTSP Total to Total % distri- Factor
bution
(1) (2) (3) (4) (5) (6) (7) (8) (9) (10)
Maharashtra 1855.5 547.5 2403.0 100.00 100.00 100.00 77.2 100.0 1.00
Rest of Maha. 1279.4 224.5 1503.9 68.95 41.01 62.58 85.1 71.1 0.97
Mumbai City - 1.0 1.0 - 0.19 0.04 -    
Mumbai - 3.5 3.5 - 0.63 0.14 -    
Thane 427.8 24.1 451.8 23.05 4.39 18.80 94.7 16.8 1.37
Raigarh 9.8 37.2 47.0 0.53 6.79 1.96 20.9 3.3 0.16
Ratnagiri - 1.0 1.0 - 0.18 0.04 -    
Sindhudurg - 0.2 0.2 - 0.04 0.01 -    
Nashik 319.0 51.1 370.1 17.19 9.33 15.40 86.2 17.0 1.01
Dhule 92.7 19.6 112.2 4.99 3.57 4.67 82.6 7.0 0.71
Nandurbar 331.5 6.2 337.8 17.87 1.13 14.06 98.2 12.4 1.44
Jalgaon 17.5 33.5 51.0 0.94 6.13 2.12 34.3 6.6 0.14
Ahmednagar 40.9 20.4 61.4 2.21 3.73 2.55 66.7 4.1 0.54
Pune 40.1 20.3 60.4 2.16 3.72 2.51 66.3 3.8 0.57
Satara - 1.1 1.1 - 0.20 0.04 -    
Sangli - 0.9 0.9 - 0.16 0.04 -    
Solapur - 3.4 3.4 - 0.62 0.14 -    
Kolhapur - 1.1 1.1 - 0.19 0.04 -    
Vidarbha 543.9 259.3 803.2 29.31 47.36 33.42 67.7 25.8 1.13
Buldhana - 20.1 20.1 - 3.67 0.84 -    
Akola - 17.8 17.8 - 3.24 0.74 -    
Washim - 13.8 13.8 - 2.52 0.57 -    
Amravati 83.4 25.9 109.3 4.49 4.73 4.55 76.3 4.4 1.02
Yavatmal 99.7 44.4 144.2 5.38 8.12 6.00 69.2 5.6 0.96
Nagpur 17.7 49.9 67.6 0.95 9.12 2.81 26.1 4.8 0.20
Wardha - 22.2 22.2 - 4.06 0.93 -    
Bhandara - 13.7 13.7 - 2.51 0.57 -    
Gondia 53.2 14.0 67.3 2.87 2.56 2.80 79.2 2.3 1.23
Chandrapur 91.6 34.5 126.1 4.94 6.30 5.25 72.6 4.2 1.17
Gadchiroli 198.2 2.9 201.1 10.68 0.53 8.37 98.6 4.5 2.36
Marathwada 32.2 63.7 95.9 1.74 11.63 3.99 33.6 3.1 0.56
Aurangabad - 4.9 4.9 - 0.90 0.21 -    
Jalna - 1.6 1.6 - 0.29 0.07 -    
Beed - 1.2 1.2 - 0.22 0.05 -    
Parbhani - 1.7 1.7 - 0.32 0.07 -    
Hingoli - 21.5 21.5 - 3.93 0.89 -    
Nanded 32.2 29.0 61.3 1.74 5.30 2.55 52.6 3.1 0.57
Osmanabad - 1.4 1.4 - 0.25 0.06 -    
Latur - 2.4 2.4 - 0.43 0.10 -    
Notes: ‘% distribution of TSP area tribal population as per 2011 census and ‘Factor’ refers to the ratio of percent-
age of TSP outlay by percentage of TSP area tribal population, i.e., col (5)/col (9).

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 55

Appendix 4.3: Sub-sector-wise Percentage Expenditure out of TSP State Plan, District Plan and Total Outlay,
Maharashtra, 2012-13

Head of Development and Sub head 2012-13

State Plan District Plan Total (State)
Agriculture & Allied Services - - 82.0
1.Crop Husbandry (Agriculture Department) 80.0 80.0 80.0
2. Horticulture (Agriculture Department) - 80.0 80.0
3. Soil & Water Conservation (Water Conservation, Forest Depart- 80.0 96.7 95.1
ment)
4. Animal husbandry (Agriculture, Animal Husbandry, Dairy 80.0 79.3 79.6
&Fisheries Dept)
5. Fisheries (Agriculture, Animal Husbandry, Dairy & Fisheries - 80.0 80.0
Department)
6. Forest (Revenue and Forest Department) - - 77.3
7. Co-operation - - 79.2
Rural Development - - 95.9
1. Integrated Rural Development Programme (Rural Develop- - 80.0 80.0
ment Dept)
2. Drought Prone Area Programme (Rural Development Depart- - 80.0 80.0
ment)
3. Jawahar Rozgar Yojana (Rural Development Department) - - 100.0
4. Rural Sanitation Programme - 80.0 80.0
5. Community Development - 43.0 43.0
Irrigation and Flood Control - - 80.0
1. Medium Irrigation Project (Irrigation Department) 80.0 - 80.0
2. Minor Irrigation (Local Sector) (Rural Development Depart- - - 81.7
ment)
3. Minor Irrigation- Irrigation Department (State Sector) - - 80.0
4. Minor Irrigation (Water Conservation department) - - 74.2
Power Development/Non Conservation Energy - - 80.0
Industry and Minerals: Village & Small Industries - 88.4 88.4
Transport - - 88.4
1. Road Transport - - 88.3
2. Home Transport 95.0 - 95.0
Gen. Economic Services - 80.0 80.0
Social & Community Services - - 85.3
1. General Education 99.8 - 96.9
2. Technical Education 80.0 17.5 44.0
3. Sports & Youth Welfare - 77.6 77.6
4. Medical Education - 80.0 80.0
5. Public Health - - 75.2
6. Water Supply & Sanitation - 80.0 80.0
7. Housing 80.0 - 80.0
8. Urban Development 80.0 80.0 80.0
9. Information & Publicity - 70.0 70.0
10. Welfare of Backward Class (T.D.D.) - - 87.7
11. Social Welfare (Mahila& Bal Vikas) - 80.0 80.0
12. Labour & Labour Welfare - - 69.4
13. Nutrition - - 80.0
Grand Total - - 85.1

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

56

Appendix 4.4a: Nucleus Budget, (2013-14) ITDP Taloda (Nandurbar District)

Name of Schemes Target Completed Expenditure

Division A: Income generation schemes 478 478 5094593

Supply of kitchen utensils to tribal self-help groups (with 85% 100 100 1275000
subsidy)

Supply of Weaving machines to tribal beneficiary (with 85% 158 158 1274428
subsidy)

Supply of Flour mills to tribal beneficiary (with 85% subsidy) 65 65 634790

Supply of tarpaulin to tribal beneficiary (with 85% subsidy) 155 155 1910375

Division B: Skill development programmes (2012-13 pending 537 537 3470885

plan)

Light vehicle and heavy vehicle driver or conductor training for 121 121 420335
tribal youth

Medical and engineering entrance exam training to 12th pass 141 141 1029300
science students

Medical and engineering entrance exam training to 12th pass 275 275 2021250
science students

Division C: Human resource development property schemes 1031 1031 1817736

Analysis of training requirement of unemployed tribal girls and 1000 1000 1415736
boys

Allowance to the I.T.I tribal students during apprenticeship 31 31 402000

Total: Amount Received = Rs 1,04,00,000; Expenditure = Rs 1,03,83,214; Balance : Rs 16,786 (surrendered to BDS)

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

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Appendix 4.4b: Nucleus Budget, (2013-14) ITDP Dharni (Amravati District)

Name of Schemes Budget Expenditure Target

Division A:Income generation schemes 

Supply of sewing machines and Pico Fall machines to tribal 500000 425000 50
women (with 85% subsidy)

Supply of tin plate to tribal beneficiary farmers(with 85% subsidy) 450000 382500 30

Three wheeler-Katala supply to the tribal beneficiary (with 85% 748200 635970 58
subsidy)

Supply of Thresher machines and pumps to tribal beneficiary 735000 624750 14

(with 85% subsidy)

Supply of spray sprinklers to tribal beneficiaries (with 85% sub- 1200000 1008168 40
sidy)

Supply Drip sprinkler set to tribal beneficiaries (with 85% subsidy) 480000 392016 12

Total Expenditure: Division A 4113200 3468404 314

Division B: Skill development programmes  

Medical and engineering entrance exam training to 12th pass 1800000 1800000 120
science students

Beautician course and supply of related tools kit to tribal women 250000 250000 25

Marathi and English typing course with stipend for commuting 270000 270000 30

Training tribal self-help group of making a leaf plate 550000 550000 55

For conducting sports proficiency tests for students 250000 250000 100

Total Expenditure B Division 3120000 3120000 305

Division C: Human resource development property schemes

Awareness Melava for tribal people 120000 120000 6 (Mela-

va)

To issue caste certificate and revenue documents e.g. Form 7/12 150000 150000 1000

Supply of solar lamps to Ashram schools where electricity is not 1983000 1983000 1750
available(one lamp for five students)

Financial assistance to the victims of disasters 450000 450000 30

Financial aid to cooperative organizations for purchasing fishing 300000 300000 6

boats and other material

Financial aid for advanced training to award-winning wrestler Mr 50000 50000 1

Anil KaluramTordak

To stage play “Mahanayak Birsa” to create awareness among tribal 170000 170000 1
people

Financial aid to supply three wheeler cycle to disabled individuals, 750000 567600 64
(100% subsidy)

Total C Division 3973000 3790600 2852

TOTAL A. B. C. Division 11206200 10379004 3471

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

58

Appendix 4.4c: Nucleus Budget 2013-14, Chandrapur District

Name of Scheme Proposed Estimated Received Expenditure

number of cost of budget
beneficiaries schemes BDS

Division A: Income generation schemes 821 6410500 5833105 1359200

Supply of light trap and farm trap for crop pro- 196 1020000 10999984 1019200
tection (85% or100% subsidy)

Sewing machine training and supply of Pico fall 148 997500 844873 0
and sewing machine (85% or100% subsidy)

Sewing machine training and supply of Pico fall 176 945000 820068 0
and sewing machine (85% or100% subsidy)

Supply Tarpaulin to tribal farmer on subsidy 165 1000000 865000 0

(85% or100% subsidy)

Supply plotter machine to tribal groups (85% 10 Groups 1750000 1592000 0

or100% subsidy)

Biomass charring and smokeless fuel production 80 400000 340000 340000

training and supply of instruments

Honey collection training and supply of instru- 20 298000 271180 0

ments to unemployed youth in Jiwati block
(85% or100% subsidy)

Division B: Skill development programmes 560 3870000 3845000 1625000

Training tribal youth for Police exams and 100 600000 600000 600000
heavy/light motor driving

MS-CIT coaching for tribal youth 200 640000 640000  

Coaching for medical, engineering, PMT, PIT, 50 600000 600000  

AIEEE exams to 12th class pass science pass
student.

MPSC/UPSC coaching for tribal youth 30 750000 750000  

Training for Wildlife conservation and wildlife 50 900000 900000 900000

crimes investigation

Tourist guide training for Tadoba Andhari tiger 30 150000 125000 125000
project

Marathi and English language training to tribal 100 230000 230000  

men and women(total 30 beneficiaries)

Division C: Human resource development 1336 4247374 4453584 2241668

schemes

Awareness programmes and social gatherings 19 (Melava) 600000 600000 600000

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 59

Name of Scheme Proposed Estimated Received Expenditure

number of cost of budget
beneficiaries schemes BDS

Workshop for sharing information on various 914 700000 700000 518716

schemes and programme of TDD for Sarpanch,
member, Secretary.(Gram Sevak)

To prepare a Micro-Plan for collective forest 10 (Villages) 500000 500000 500000

rights

Distribution cost e.g. transportation during   320000 171580 171580

implementation, monitoring, evaluation, aware-
ness, etc.(at 2% of total cost)

Services of skilled individuals for short period to 2 218000 216630 151372

complete public construction works

Urgent assistance to tribes during disasters or 60 300000 300000  

atrocities

Supply of cycles to hostel students (100% Men 119 379134 697374  

subsidy )
Women 104 318240    

Empowerment and leadership training to tribal 1 (workshop) 300000 300000  

women

Supply of Lokrajya magazine to tribal youth 120 12000 12000  

Training teachers of Government Ashram   300000 300000 150000

Schools

To organize sports’ camps for tribal students   300000 300000 150000

To organize motivational and career counselling 17 356000 356000  

workshops for hostel students

Total Divisions A,B,C (Provision Rs. 17800000; 2717 14527874 14131689 5225868
Received Rs. 14240000 (BDS)

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60

Appendix 4.4d: Nucleus Budget 2013-14, Jawhar ITDP (Thane District)

Name of Scheme Budget Benefits

Division A: Income generating schemes

Financial aid for the handicraft manufacturing to the Scheduled Tribes beneficiaries 68000 4

Financial aid for Nursery 216750 15

Financial aid for kitchen utensils business 191250 15

Financial aid to Katkari tribals for brick making business 500000 10

Financial aid to Scheduled Tribes for brick manufacturing 419900 13

Financial aid for floriculture 552500 52

Financial aid for dry fish business 637449 66

Financial aid for to farmers for vegetable plantations and floriculture 170000 10

Financial aid to Scheduled Tribe beneficiaries for starting Dhabas 212500 20

Financial aid for Agriculture Centre 327250 11

Financial aid for Floriculture 249900 21

Financial aid to the tribal beneficiaries for D.J. (music player) business 255000 12

Financial aid to tribal beneficiaries for poultry business 426360 22

Financial aid to the tribal beneficiaries for fishing business 1292000 38

Financial aid to the tribal beneficiaries (through NGO) for poultry 627300 18

Training for tribal beneficiary of building work and supply of instrument through the 544000 50
NGO

Training for tribal beneficiary of carpenter work and supply of instrument through 544000 50
the NGO

Financial aid for Dhaba Business to the Katkari through NGO 250000 20

Financial aid for kitchen utensils Business to the Katkari beneficiary through the NGO 300000 15

Financial aid for floriculture to the tribal beneficiary supply through NGO 297500 20

Financial aid for speakers and vegetables plantations for self-employment 119000 3

Division B: Skill development programme 

Personality Improvement programme for tribal youth (2012-13 schemes ) 750000 50

Training in Bamboo crafts and supply of tools and equipment 500000 50

MS-CIT Training for tribal youth ( Pragati Computer Jawhar, Thane ) 747600 267

MS-CIT Training for tribal youth ( Adarsha Computer Jawhar Dist., Thane ) 747600 267

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 61

Name of Scheme Budget Benefits

Marathi/ English typing coaching ( 2012 -13, Adarsh typing class) 748200 129

Training for tribal students in Marathi/ English typing ( 2012 -13, Pragati typing class) 748200 129

Financial aid for training in Warli Painting (Shri Ganesh NGO Jawhar) 102450 75

Financial aid for training in Warli Painting (Jagdamba Mitramandal Jawhar) 132675 156

Building supervisor’s training for tribal beneficiaries 528000 55

Financial aid for training in Warli painting (Gram Chaitanya NGO Jawhar,Dist.Thane) 298130 120

Training 12th standard pass science students for Medical and engineering entrance 528000 44
exam

Training 12th standard pass science students for Medical and engineering entrance 540000 45
exam

Training 12th standard pass science students for Medical and engineering entrance 750000 50
exam

Training 12th standard pass science students for Medical and engineering entrance 720000 48
exam

Training 12th standard pass science students for Medical and engineering entrance 750000 50
exam

Training 12th standard pass science students for Medical and engineering entrance 1224000 102
exam

Division C: Human resource development property schemes  

Financial aid for tribal victims of disasters 40000 3

Financial aid for art and sport festival in tribal area 225000 500

English- speaking course for personality development of tribal youth 348000 60

To organize a cultural festival at Jawhar 400000 500

Training of MS-CIT to the tribal students 373625 245

financial aid to educated unemployed youth for distribution of Lokrajya magazine 50000 500

Training for CCC (computer coaching class) to the tribal students 240361 9

Financial aid for children’s science workshop and council ( G. T Thane ) 14500 65

Medical and engineering entrance exam training for 12th standard pass science 1980000 150
students (S A Nashik)

Medical and engineering entrance exam training to 12th science pass students (S A 1980000 150
Nashik)

2013 -2014 Total Budget A.B.C 23667000 4304

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

62

Appendix 4.5: Expenditure Shortfall in TSP from 1993-94 to 2010-11 as Calculated by Kelkar Committee

(Rs. In Crore)

Year State State Expected Op- Actual Shortfall % of TSP % TSP

Plan Plan Provision erational Expendi- (4-6) Exp. To Exp. to
Outlay Actual for TSP at Provision ture un- Annual Op-
Expendi- 8.9% for TSP der TSP State Exp. erational
ture Provision

1 2 3 4 5 6 7 8 9

1993-94 3804 3781 342 265 266 76 7.0 100.4

1994-95 4400 5122 396 330 275 121 5.4 83.3

1995-96 6069 6627 546 413 412 134 6.2 99.8

1996-97 8284 6848 746 589 535 211 7.8 90.8

1997-98 8325 7938 749 550 498 251 6.3 90.5

1998-99 11601 8187 1044 561 520 524 6.4 92.7

1999-00 12162 10419 1095 581 467 628 4.5 80.4

2000-01 12330 9586 1110 525 444 666 4.6 84.6

2001-02 11721 8526 1055 567 367 688 4.3 64.7

2002-03 11135 7539 1002 585 323 679 4.3 55.2

2003-04 12650 8188 1139 556 450 689 5.5 80.9

2004-05 9447 9817 850 530 376 474 3.8 70.9

2005-06 11000 14674 990 990 929 61 6.3 93.8

2006-07 14829 15681 1335 1389 1323 12 8.4 95.2

2007-08 20200 19422 1818 1798 1659 159 8.5 92.3

2008-09 25000 22861 2250 1942 2027 223 8.9 104.4

2009-10 37915 27731 3412 2314 2130 1282 7.7 92.0

2010-11 33935 32577 3054 3374 2323 731 7.1 68.9

Total 254807 225524 22933 17859 15324 7609 6.8 85.8

(Ref: State Annual Plan and Tribal Sub-Plan 1993-94 to 2010-11)

Source: Reproduced from Annexure 7.4 in Kelkar Committee Report on balanced Regional Development

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 Chapter 5
Functional Assessment of TDD/ITDPs
In the earlier chapters, we analysed the socioeconomic characteristics of the ST population vis-
à-vis total population, and the TSP budget and expenditure over a period. We will now examine
the PO ITDP structure and the changes necessary for ensuring more efficient functioning. The
conclusions drawn in this section are based on interactions with the field level functionaries
and officers, and the community as well as desk review of the various GRs on the financial and
administrative powers in the department.

To assess the issues related to TDD, the field team

The Study found in its interaction that
looked at the structure of ITDPs including staff some of the biggest problems that beset
position and vacancies, roles and responsibilities the PO ITDP structure are:
of POs, APOs and other programme functionaries,
1. Limited manpower.
programme planning and implementation
2. Uncoordinated delivery of schemes by
processes, funds flow (timeliness, adequacy,
multiple departments.
hierarchical level, and transparency of
functioning), and monitoring and evaluation. 3. The present system of service delivery,
scheme design, and institutional
Also included in the study are Information
mechanisms are not in line with the
Education Communication (IEC) activities that the
mandate of PESA
department conducts to create awareness about
4. Lack of delegation of powers.
the schemes and benefits that the tribal people
can claim, involvement of panchayats in the 5. Excessive centralisation of decision
selection of beneficiaries (mainly for individual making at the Commissionerate and
ATC levels.
financial benefits). The study also examines the
vision and mission of the department, and makes 6. Little administrative control on
recommendations for improving the functioning departments

of the department.

Project Officers of ITDPs

According to the Government Regulation (GR) issued by TDD, Maharashtra, on November 9,
1993, the eleven sensitive ITDPs were supposed to have IAS or Indian Forest Service (IFS) officers
as POs. We found that, of the four Project Officers (POs) interviewed, two were from the Indian
Administrative Service (IAS) cadre and the other two were from the state cadre. According to
sources, earlier, IAS officers were posted as Project Officer in many ITDPs to ensure better control
over tribal welfare programmes. However, at present, only a few IAS officers are posted as PO,
ITDP.A likely reason is the reluctance of the officers to work in remote tribal areas. The quality
of cadre for PO, ITDP is crucial for the proper functioning of ITDPs. It is generally believed that,
64

if the PO is an IAS officer with powers of additional District Collector as in Andhra Pradesh, he/
she would exercise more effective control over the functioning of ITDP and other Administrative
departments there by improving performance.

Roles and Responsibilities of Project Officer

The Project Officer is responsible for the overall planning and Nearly 56 percent of the
implementation of TSP programmes at the ITDP level. The PO posts at different levels are
vacant in the TDC, ATCs
is directly responsible for the implementation of the schemes
and ITDPs combined. At
under “Welfare of Backward classes” for which 40 percent of the
least one-third of the posts
district TSP plan is earmarked. The major portion of the ITDP are vacant at every level in
budget (Welfare of Backward classes) is utilized for running the TDD, including ITDPs
Ashram Schools. In districts with more than one ITDP, one of the and Ashram schools.
POs is appointed as the nodal PO and only he interacts with the
DPC and administrative departments. The nodal Project Officer
coordinates the functions of the ITDPs and Administrative departments in the district. He/she is
a member of the District Planning Committee where the programmes and budget are discussed
and finalized.

The POs receive proposals from administrative departments and after scrutiny at their level
(assessment of financial needs/requirements and fitting it within the given ceiling), they forward
them to the District Planning Committee (DPC) for further consideration and finalization. The PO’s
office prepares the MPR (Monthly Progress Report).Financial statements received from administrative
departments are also compiled and forwarded it to the higher authorities.

Staff Position and Training of Officers

Statistics gathered from the Tribal Development Commisionerate (TDC) revealed that nearly 56
percent of the posts at different levels are vacant in the TDC, ATCs and ITDPs combined.
The situation is the same for the four selected ITDPs as well. At least one-third of the posts
are vacant at every level in the TDD (see Table 5.1). It was reported that, due to shortage of staff,
many of the Ashram School junior clerks were also working as clerks in the ATCs and ITDPs. Such
a high number of vacancies adversely impact the functioning of TDD at all levels as well as the
Ashram Schools. Besides government apathy over filling the positions, one reason for the high
number of vacant posts in the TDC hierarchy was the unwillingness of the staff to be posted in
ITDPs as they are located in rural areas and small towns where housing, shopping, recreational
and educational facilities are minimal.

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Table 5.1: Vacant Posts in the TDD at all levels as of August 2013 (Source TDD)
Designation Approved Filled Vacant No. of posts
vacant as %
of approved
posts
Senior level (Commissioner, Addl. Commissioner, Asst. 63 41 22 34.92
Commissioner, Dep. Commissioner, PO, Asst. Officers,
SRO)
Middle level (APO, Planning Officer, Documentation 225 101 124 55.11
Officer, PA)
Junior level (Asst. Douc. Officer, Office Superintendent, 1580 590 990 62.66
SEO, JEO, RA, STD Inspector, clerks, Accountant, Typists,
Driver)
Peon level (Pump operator, Barber, Guard, gardener, 278 138 140 50.36
sweeper)
Total 2146 939 1207 56.24

Constraints of Manpower and Technical Competence in ITDPs

While the TDD carries out many functions through the Zilla Parishad structure or the line
departments, a large number of TSP schemes involving large expenditure are implemented by
the PO ITDP structure. Due to limited availability of manpower and lack of appropriate skills and
technical competence, many schemes involving substantial expenditure (distribution of diesel
pumps, construction of houses, land improvement schemes, livelihood schemes, nucleus budgets,
Thakkar Bappa Yojana) are adversely affected. The limitations become evident at three levels-

Selection of beneficiaries- There is not enough staff to oversee the process of selection and
endorsement of beneficiaries by the GP.

Implementation- Manpower with technical expertise to carry out schemes which require good
___domain knowledge (engineers, agriculture officers, etc.) is not available in adequate numbers.

Monitoring- There is limited staff available to monitor the progress of works, and to perform
the paper work.

(The GP or PS should be empowered to source technically qualified local people on an adhoc

basis from carry out specific functions.)

Most of the POs reported that they do not have the required expertise in the technical aspects
of the programmes (such as determining the quality of construction of roads and buildings).
There is also a lack of technical manpower such as experts in agriculture, engineering and
animal husbandry. This, they said, hindered proper monitoring and verification of the quality
and completeness of schemes not only by their own department, but also by the administrative
departments. There are certain schemes run by ITDPs for which they do not have expertise
because of which the quality of work could neither be ensured nor verified. For example, the
construction of buildings and link roads under Thakkar Bappa scheme is under the ITDP’s

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

66

control, but they have to get it done through PWD because of the lack of technical competence
and manpower. The POs suggested that schemes should be given to the departments that
have the technical knowledge and expertise in that area. Schemes like providing diesel pump
sets/electric pumps, milch animals, PVC pipes and digging wells for tribal farmers are run by
TDD which, according to the POs, can be better implemented by departments like agriculture,
animal husbandry and rural development.

This problem can be addressed by one of the following interventions:

Option I: Provide adequate staff with the required technical and supervisory competencies,
which will function under the control of the PO ITDP.

Option II: Transfer the schemes to the Zilla Parishad system and the line departments and
ensure accountability for their effective implementation.

Option I may not be a particularly feasible one to adopt in view of the administrative structure
that prevails in Maharashtra where the ZP structure and line department have been traditionally
provided with a large number of staff right down to the village level. Hence, any additional staff
at the PO ITDP level would only result in unnecessary financial expenditure and duplication,
which is also against the requirements of PESA. (See the Section above on TSP and PESA)

Hence, it is strongly recommended that schemes for which Zilla Parishads have the competence
and manpower to implement should be transferred to them. Subjects not transferred to the
Zilla Parishads can be addressed by the respective line departments (We recommend that this
should be an exceptional occurrence in the context of the requirements of PESA, and also in
view of the lukewarm response of the line agencies to TDD schemes). The function of the PO
ITDP, then can be one of a link officer between the funding (Tribal development Department)
and the implementing agencies. Such arrangements already exist between the Zilla Parishads
and other departments in which the ZP provides agency functions for handling the schemes of
the parent department (health, education, Women Child Development, etc.).

Programme Planning
At the state level, the planning department allocates funds for TSP in proportion to the share of
the ST population in the state and communicates this to the Tribal Development Department.
It is clear that the Planning Department and also the Finance Department have no (significant)
role in the planning of TSP activities except in the allocation and release of funds respectively.

The TDD in turn distributes the funds to ITDPs and state-level and district-level Administrative
departments as per laid down norms. Based on the allocation, each administrative department
has to submit proposals to the TDD about programmes they wish to undertake with the TSP

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 67

funds and send it to TDD for approval. The Tribal Development Department officials at Mantralaya
said that the Tribal Development Department rarely scrutinizes the proposals received from the
state administrative departments or comments on them except for checking the total amount.
If the total amount exceeded the allocated amount, the proposal is sent back for revision. The
TDD does not make any changes in the proposals on its own. The study teams do not know if
other officials have a different view, but it may be mentioned here that the team did not have
access to any documents related to this issue.

However, it does appear that the TDD does not interact much with the other administrative
departments of the State Government for reviewing schemes or making suggestions for making
them more relevant to tribal communities and their development, or even seeking clarifications
on the proposal about the relevance or usefulness of the schemes and activities proposed in
them. Thus, though a percentage of outlay is set aside for TDD, its role in designing or taking
ownership of interventions is limited.

District Level Planning

According to the Sukthankar Committee’s
The POs reported that they do not
recommendations and GR of 1992, PO is supposed have expertise in technical aspects
to be the planning officer. Planning of TSP schemes of the programmes. There is lack
starts in the month of September-October of the of technical man-power such as
previous year when the state level officials from the experts in agriculture, engineering
Tribal Development Departments send guidelines and animal husbandry. The POs
and allocations to the ITDPs and Administrative suggested that schemes should be
given to the departments that have
departments. In turn, the nodal POs send letters to the
technical knowledge and expertise
administrative departments seeking proposals for the
in that area.
following financial year. The administrative departments
send in their proposals to the concerned ITDP (Nodal
PO, ITDP of the district).The POs, after scrutiny and consolidation, present the proposals (plans)
to the District Planning Committee (DPC). The DPC usually meets in December, discusses the
district plan and finalizes it. It must be noted here that the DPC discusses not only the TDP
plan proposals, but also the general plan proposals of all the administrative departments
and hence, attendance and time devoted for discussing the TSP plan proposals is likely to be
limited. Thereafter, with the signature of the District Collector and Guardian Minister, the plan
is sent to the Tribal Development Department at Mantralaya, Mumbai for further consideration
and approval. Probably, a separate structure is needed to discuss the proposals and schemes,
along with the monitoring mechanisms, in greater detail before decisions and approvals are
given. (However, the DPC itself can be mandated to meet separately before the main planning
discussion so that TSP issues can be merged into the main District Plan.)

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

68

Simultaneously, the ITDPs plan their own activities and present their proposals to the Project
Level Implementation Committee. The committee decides which projects/programmes have
to be prioritized and then finalizes the plan by At the state level, the planning department
end-November or December. The plan is then allocates funds for TSP in proportion to the
sent to the ATC (without routing through the DPC) share of the ST population in the state. At
and from there a detailed consolidated plan is the TDD level, the TSP funds are divided
submitted to the Commissionerate at Nashik. A into two parts, state plan and district
plan, roughly in the ratio 40 percent and
detailed plan for the welfare of backward classes
60 percent. Similarly, the district plan
in all districts is submitted to the TDD (Mantralaya)
funds are also divided into two parts with
by the Commissionerate for approval. The approximately 40 percent for the direct
department functionaries maintained that, like schemes of ITDPs and the remaining 60
any other scheme, the Nucleus Budget also has percent for the direct schemes of the
to be planned in advance alongside the plan for administrative departments at district
the welfare of backward classes and submitted level. The Tribal Development Department
to the ATC. As such, the Nucleus Budget is not distributes the funds directly to the
administrative departments at the state
for meeting short-notice requirements or as
level, and the district plan funds for the
and when needed; it has to be planned in the
individual Administrative departments
preceding year like the other schemes. As the are routed through the District Collector
budget sub-heads of the Nucleus Budget are at the district level.
more or less the same across the four study ITDPs,
it is not clear how the Nucleus Budget is different
from the overall budget in its objectives of meeting the local needs of the tribal communities
of the ITDPs.

The main schemes that actually benefit the tribal people and are popular in the tribal community
are distribution of diesel/electric pumps, PVC pipes, Gharkul, Thakkar Bappa, Ashram Schools,
etc. It was reported by some officials that some schemes are good in principle, but very difficult
to implement (like the Swabhiman Yojana in which the approved rate for land acquisition is
very low and at which good quality land cannot be purchased) and they wanted such schemes
be scrapped. On the other hand, the Janjagran Melawa, a training programme for Sarpanches,
and Training of ST youth for Competitive Exam have had good impact on the people.
Increasing numbers of tribal youths are preparing for Union Public Service Commission (UPSC)/
Maharashtra Public Service Commission (MPSC) exams. There is more awareness among people
the schemes and programmes that they can benefit from. There are also several programmes
on the priority list of ITDPs (bicycle distribution to tribal students, Dhan Distribution Scheme,
Tailoring Scheme, MSCIT Training, MPSC/UPSC Training Programme, IIT/PMT coaching classes
and Women Empowerment Programmes for Tribal Women, etc.).

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 69

Flow of Funds
According to the Sukthankar Committee’s recommendations, 60 percent of the total funds
should be allocated for district-level and the remaining 40 percent for state-level schemes. Of the
60 percent meant for the districts, a minimum of 40 percent is used for the welfare of backward
classes (under the TDD) and the remaining 60 percent by the administrative departments with a
ceiling (explained in Chapter 4) fixed for a particular department under the TSP. The total outlay
is disbursed to state and district departments by TDD (Mantralaya).

The state funds are disbursed directly by the TDD while the district funds are routed through the
District Collector. From the District Collector, the ITDPs get funds for the “welfare of backward classes”
schemes and the administrative departments for their respective schemes. Out of the 40 percent
of the state plan funds retained by the TDD, a portion of it is given to the ITDPs through the Tribal
Development Commissionerate. The flow of funds is described in the paragraphs that follow.

At state level, the planning department allocates funds for TSP in proportion to the share of
the ST population in the state. As discussed in the previous chapter, in recent years the TSP
allocation was about 8-9 percent of the total plan outlay of the state. For 2014-15, allocation
was 9.4 percent, which matches with the 9.35 percent of ST population in the state as per the
2011 census.

At TDD level, the TSP funds are divided into two parts namely, 40 percent for the state plan
and 60 percent for the district plan. The state plan funds are further divided into two parts
with approximately 50 percent earmarked for the direct schemes of TDD and the remaining
50 percent for the state-level direct schemes of the administrative departments. Similarly, the
district plan funds are also divided into two parts with approximately 40 percent for the direct
schemes of ITDPs and the remaining 60 percent for the direct schemes of the administrative
departments at district-level. Overall, 40-45 percent of the TSP funds are used by the TDD and
the ITDPs for their direct activities and the remaining 55-60 percent of the TSP funds go to the
state-level and district-level administrative departments, which includes the Zilla Parishads and
Rural Development Agencies of the respective districts.

In reality, however, the percentages may vary slightly from year to year as we have seen in the
previous chapter. The Tribal Development Department distributes the funds directly to the
Administrative departments at the state level, and the district plan funds for the individual
administrative departments are routed through the District Collector at district- level.

The budgetary process also involved non-plan categories for funds. The Planning Officers and
one of the Deputy Commissioners mentioned in the interview that any institutional scheme
like a new ashram school that is planned under the Five Year Plan remains in the plan category
for five years and is then moved to the non-plan category. Only routine heads such as salaries

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

70

of personnel including teachers and staff of Ashram Schools, and maintenance of offices come
under the non-plan heads of expenditure. The schemes aimed at benefiting the people’s remain
within the plan category.

The non-plan heads receive separate funds from the Social Welfare Department (the State). The
TSP Plan budget is only about one-third of the total budget (plan and non-plan funds combined)
of the TDD. The funds for social welfare programmes are received relatively earlier, which include
salaries for staff, maintenance of offices and Ashram School infrastructure, stationery, travelling
allowances, maintenance of vehicles and so on.

The release of budget funds is done through the Budget Distribution System (BDS), which is
maintained by the Finance Department. ITDP officials we spoke to reported that the money for
Ashram Schools and related activities comes in May or June, whereas the funds for developmental
activities are released a little later. Therefore, these schemes are implemented after the rainy
season. State officials reported that a token amount (33 percent of the budgeted amount) is
released through the BDS for the first four months at the beginning (in May or June); a further 27
percent of the amount is released once the budget is approved by the Governor. In November
or December, the Collector undertakes a review of the expenditure from the 60 percent of the
amount already released based on which a re-appropriation of funds is recommended and
approved by TDD. The final instalment of the remaining 40 percent of the amount is released
in December or January depending on the availability of funds with the Finance Department.

Core and non-core areas are decided under TSP. As per the GR of TDD, Maharashtra, dated
December5, 2011, at the time of re-appropriation of funds the amount budgeted for non-core
activities/areas can be transferred and used for core activities/areas within TSP but funds cannot
be diverted from core to non-core areas. The core and non-core areas are given in the Table 5.2.

Table 5.2: Core and Non-core areas for allocating funds in Tribal Sub-Plan

Core Areas Non-core Areas

Welfare of Backward Class Sports and Youth Development

Agriculture and Allied Services (Watershed, Animal Hus- Public Health Service
bandry, Dairy Development etc.)
Rural Water Supply and Sanitation
Transportation and Communication (District Road)
Rural Development Schemes (SGSY, Jawahar Em-
Women and Child Development, Anganwadi Construc- ployment Scheme, Rural Sanitation Programme)
tion, Nutrition
Rural Electrification
Common and Technical Education
IEC Activities
Small Dam Construction
Forest Tourism

Other Development Areas

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 71

The Problem of Centralisation of powers in the administrative and financial structure

of the Tribal Development Department
One of the biggest reasons for the lack of efficiency of the ITDP structure lies in − what we
perceive as − excessive centralization of powers in the TDD structure. The decision- making
processes (on financial as well as administrative matters) are not conducive to effective
implementation. We learnt from our interactions that, in the present scheme of things, the
heads of institutions (e.g., the warden or headmaster of an Ashramshala) as well as the PO
ITDP have to refer to at least the ATC or the Tribal Commissioner for most decisions. Tenders,
procurement, etc. are concentrated at the Commissionerate level. In fact, it is interesting
to note that the CEO of ZPs (whose jurisdiction is within the district) has more powers of
administrative sanctions than even the Tribal Commissionerate, much less the PO, ITDP,
who has very few independent powers, whether administrative or financial.

Therefore, one of the reasons for the poor maintenance and upkeep of Ashramshalas, a
problem that is frequently commented upon by officials as well as civil society members,
is that the structure at institutional level has not been given adequate administrative
powers. In this regard, one can draw comparisons with a similar situation that existed in
health institutions before the NRHM introduced decentralization of funds, and brought in
accountability for their utilization through institutions such as the Rugna Kalyan Samiti
(RKS). A similar decentralized structure is possible in the present context also and need to
be built into the field-level institutions of tribal development department.

Selection of Beneficiaries
The TDD’s GR of Nov 26, 2013mandates that, under the PESA Act, selection of Scheduled Tribe
beneficiaries should be done by Gram Sabhas for individual benefits schemes being implemented
by the Tribal Development Department. But, in practice, as ascertained by the study teams, the
selection for the individual benefit schemes of ITDP is still being done directly by ITDP. The Gram
Sabhas are not involved in the selection of beneficiaries. In some ITDPs, however, Gram Sabhas
are only used to announce the schemes, distribute application forms, collect applications and
pass them on to ITDPs through ITDP’s inspectors. For community development schemes like
Thakkar Bappa Yojana, the community is consulted through the Gram Sabha. For individual
benefits such as diesel/electric pumps or Kanyadaan Yojana, applicants approach the respective
ITDPs directly. However, they have to get their documents attested by the Gram Sewak. These
documents are submitted to the ITDP and then verified by ITDP officers and inspectors.

The field teams were informed that benefits are offered on first-come first-served basis. This
method of beneficiary selection is not a very transparent one, and is vulnerable to manipulation
at various levels. This is especially likely as most ITDPs do not rely on computerised/automated
systems of receiving and recording applications. Whenever there is a call for application by the

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ITDP, villages within a short distance of the ITDPs are immediately made aware of the schemes
and they are the first ones to file their applications. The ITDPs stop receiving applications
when they receive enough numbers. As a result, people who reside in remote areas – and are
consequently late in applying –are often deprived of the possibility of even being considered
for the benefits.

Even within Gram Panchayat’s jurisdiction, the main village gets the lion’s share as compared to
peripheral hamlets. This is because the reach of IEC activities to interiors areas/hamlets is limited.
As a consequence, those who are needy but living in remote or interior areas are deprived of
many benefits. It is suggested that the number of beneficiaries should be equally distributed in
proportion to the tribal population of each village within a Gram Panchayat’s jurisdiction. Thus,
the lowest unit of selection of beneficiaries should be the individual village/hamlet rather than
the Gram Panchayat. This is also in keeping with the requirements of PESA which mandates
beneficiary selection by the Gram Sabha. The TDD should ensure that similar processes operate
for schemes being implemented by ZP/line departments for all its schemes.

It must also be noted here that, through a recent GR, the TDD has mandated that beneficiary
selection should be done by Gram Sabha. However, we found that there was limited knowledge
about the GR in the field. Also, it can be seen from the GR that, while it specifies that selection
should be done by the Gram Sabha, more clarity is required through an additional set of
guidelines.

It was also noticed that ITDPs do not really play any significant role in the selection of beneficiaries
by the administrative departments, even when the PO is present at the time of selection, which
is very rare. During our visits, we observed that ITDPs did not have a list of beneficiaries selected
by administrative departments.

IEC Activities
ITDP level review meetings are mainly
It was reported by the ITDPs and higher officials restricted to reviewing the functioning
that 2 percent of the budget is allocated for IEC of Ashram Schools. Otherwise, ITDP
activities. According to the interviewed officers, or District level re-view meetings are
the ITDPs conduct awareness programmes in not conducted to review the activities
tribal areas. With the help of other departments of Adminis-trative departments. Also

like Revenue and Police Departments, Melavas ITDP officials do not participate in the
re-view meetings of Administrative
are organized by the ITDPs to create awareness
departments. The PO, ITDPs also do
about the schemes and benefits for the tribal
not have performance statistics of the
community. Kalapathak was also used by ITDPs for administrative departments and there is
spreading information to villages through songs no system in place for the exchange of
and plays in the villages. They also distribute information between them.

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booklets containing details of schemes and programmes of Tribal Development Department and
put up banners in public places. There are advertisements on State Transport buses also. ITDP
also prepares material for IEC activities, but IEC material are prepared and distributed by the
state government as a centralized activity. Parent meetings are conducted in Ashram Schools to
disseminate information related to tribal welfare schemes and programmes.

In some areas, the tribal people are aware of the schemes and their rights as they are now
better educated and communication facilities have improved. Another reason is that a number
of tribal families are now in an economically better condition. Gram Sabhas have become a
popular source of information about tribal welfare schemes because of their involvement in the
selection of beneficiaries or, at least in receiving applications. Whenever schemes are notified to
the Gram Sabha, they in turn disseminate the information and the application requirements in
the community. This motivates more and more people to come forward to claim the benefits.
Community radio is also used in some areas for IEC activities.

In spite of the various approaches to spread awareness and disseminate information, the
field teams’ assessment was that they are not uniformly adopted in all ITDPs. Nor are they
used regularly. They officers were evasive in their replies when asked further. To a question
about their presence when the last such activity was conducted, the officers replied that “the
inspectors are conducting (the activities)” or that “Administrative departments are doing” or a
vague “a month…long ago” or that “they are yet to organize one this year”, and so on. It must
be mentioned here that these interviews were conducted towards the end of the Financial
Year. The responses show that, although IEC activities are conducted, ITDPs are rarely involved
in them. Community feedback also revealed that the IEC activities were conducted in town
areas because of which participation by tribals living in remote areas was limited. However, it
does appear that the Gram Sabhas are the chief source of reliable information about the tribal
development schemes and programmes for the tribal communities.

Monitoring and Evaluation

A crucial issue that was raised in most of the discussions was that there was no proper reporting
system for the administrative departments about their performance related to TSP. The only report
that was submitted regularly was the financial statements. The need for MIS to assess the monthly
progress and to prevent duplication of beneficiaries under different schemes was highlighted.
One of the POs said that it was very difficult to check the name of the beneficiaries manually
but if it was in a soft copy it is very easy to trace the name. Therefore, we suggest that the Tribal
Development Department develop and implement a proper MIS for monitoring and reporting.

The ITDPs conduct monthly review meeting for the Ashram Schools which are attended by
the head masters and teachers. No such review takes place with the Inspectors and other ITDP

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officials about the TSP activities. However, the POs claimed that they discuss TSP matters with
the concerned individuals whenever and as often as is needed. The fact remains that at the
ITDP level, review meetings for the activities of administrative departments are not conducted.
The ITDP officials also do not participate in the review meetings of administrative departments.
Therefore, it is clear that the review at the ITDP level is mainly restricted to the functioning of
Ashram Schools and their activities. The ATCs conduct meetings of POs and other senior staff
every month in which progress is reviewed. Even here, reviews are mainly centred on utilization
of funds instead of the performance of departments receiving TSP funds.

The field teams were also informed that the (District) Guardian Ministers and Tribal Development
minister conduct one meeting every three months at district- and state-level respectively.
Once in three months, the Tribal Minister, minister of state, and the Secretary review with the
Commissioner, ATCs and POs. However, it was learned that in most of the meetings only the
financial statements and the expenditures are reviewed instead of the actual performance of
different programs. In fact, the POs did not have the statistics of the administrative departments.
According to the ITDP officers, they are supposed to go on field visits, meet with the officials
of the administrative departments and monitor their activities. In reality, however, this occurs
rarely.

The interactions of the field teams with ITDP, Additional Tribal Commissionerate (ATC) and Tribal
Development Commissionerate (TDC) officials revealed that the ITDPs, the ATCs and the TDC do
not have any performance statistics of the administrative departments and there is no system in
place for the exchange of information between them. Unfortunately, it is assumed that spending
hundred percent of the allocated funds is assessed as good performance. It was felt that the
monitoring was mainly based on reviewing expenditures for which financial statements was
sufficient. Evaluating the (qualitative) performance and progress of development activities in
the community was considered less of a priority.

The study team also look at the Programmes and Budget Estimate Report for 2014-15 (TDD
2014) in which the previous years’ performance was expected to be reviewed; but it found that,
except for financial statements and a few performance statistics about the Ashram Schools,
there was no information about many of the direct activities of the ITDPs and administrative
departments such as health, agriculture, rural development, housing schemes, diesel/electric
pumps, khavati loan beneficiaries, training programmes and number of beneficiaries, for which
information could be easily compiled and presented.

According to ITDP officials, financial statements and utilization certificates (UCs) need to be
submitted to the ITDP by the administrative departments. Often, this is not done on time and,
sometimes, the UCs are not received at all. It was reported that ITDPs have to send several

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Plan for Outcomes, not Expenditure

It was seen that spending hundred percent of the allocated funds is assessed as good
performance. The monitoring of TDD schemes is mainly based on reviewing expenditures
and financial statements rather than evaluating their performance and resultant development
in the community. How a particular scheme leads to improve-ment in outcomes is something
which is not evaluated. In fact, the entire Planning process is not linked to the various social
indicators. Nor is there any detailed and specific vision about where the district or state sees
itself 5 years from now with ref-erence to various social indicators.

There is a need for detailed and dynamic processes and MIS in place, not just for the TDD, but
for all departments which are responsible for or have a stake in tribal devel-opment. It was
also found that there was no coordination or interaction between the Tribal Development
Department and the administrative departments including Zilla Parishad except for the nodal
PO participating in the DPC. It was said that there was no GR in place to seek performance
statistics or monitor the activities of Administra-tive departments

reminders to administrative for submission of UCs. In such a situation, the POs said that they cannot
even think of seeking performance reports from administrative departments. They also said that
there is no GR that mandates compilation of performance statistics monitoring of the activities
of the administrative departments. In the light of these findings, it is all the more important for
the government to develop a suitable MIS to monitor and review the activities and performance
of the administrative departments (including the TDD), especially on the impact of TSP activities.
Focus should not be restricted to financial statements alone.

Involvement of NGOs
Though there are NGOs located in the Taluka/District places, their involvement in the TSP
programme implementation process is limited to organizing some training programmes under
the Nucleus Budget of the ITDPs. There are a number of programmes under the Nucleus Budget
that are outsourced to NGOs such as Skill Development programmes like carpentry, pottery
work and tailoring, Computer Literacy Programmes and other Income Generation activities.

Functioning of Ashram Schools

Table 2.3a in Chapter 2 reveals that, as per the 2011 Census, there exists a literacy gap of 16 to
20 percentage points between the STs and general population. But at the same time it is also
revealed that literacy and educational levels of tribal people, both males and females, are rising
at a faster pace than that of the general population. The Tribal Development Department runs
a major scheme in the form of Ashram Schools to improve the educational levels of the tribal
population. Ashram Schools are residential schools imparting primary, middle and secondary
education to ST boys and girls. The scheme is in operation since 1952. The broad objective of

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the scheme, as specified in the GR, was to establish Ashram School complexes for the social,
educational and economic advancement of the inhabitants in scheduled and remote areas.

As per the Tribal Development Department’s Report on the Programmes and Budget
Estimate for 2014-15, there were 552 Ashram Schools for tribal students in Maharashtra
and of which 429 were located in TSP areas and the remaining 123 in OTSP areas (Table
5.3). As many as 207,503 (108,813 boys and 98,690 girls) students from tribal communities
were enrolled Ashramshalas. The average number of students per school worked out to
375 and the sex-ratio of students to 907. The sex-ratio of the students is an indication of
a fairly a good sign of more and more girls getting an education that is almost at par with
boys. In addition to Ashram Schools, the ITDPs were running or financing as many as 482
hostels (279 for boys and 203 for girls) for the tribal students. The number of students in
hostels was 44,427 (boys and girls combined), an average of 92 students per hostel. The
statistical information compiled on ashram schools and hostels from the Tribal Development
Department Performance budget Report 2014-15 is presented below.

Table 5.3: Vital Statistics of Ashram Schools in Maharashtra

S. No. Item No.

1 Total Ashram School/Central Ashram Schools 552

2 Number of Ashram Schools in TSP Area 429

3 Number of Ashram Schools in OTSP Area 123

4 Total tribal students 2,07,503

5 Number of Boys 1,08,813

6 Number of Girls 98,690

7 Number of Hostels 482

8 Number of Hostels for Boys 279

9 Number of Hostels for Girls 203

10 Total number of Boys & Girls 44,427

Every Ashram School is expected to have a Principal/Head master, school teachers (primary and
secondary), male and female hostel superintendents, office attendants, librarian, lab assistants,
peons and cooks. Ashram School teachers are expected to reside within a radius of 5 km from
the school, whereas the head master and superintendents are given accommodation within the
premises. It was observed during our visit to Ashram Schools that the number of teachers from
Schedule tribe was negligible. Both teachers and principals of Ashram Schools asserted that
there is a need of teachers from ST community to help the younger students overcome language

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barriers. The secondary data (presented earlier) The Tribal Development Department has
show that many posts at Ashram Schools are a major scheme in the form of Ashram
vacant, especially for teachers. Schools to improve the educational level
of tribal population. Ashram Schools are
Ashram School staff and APOs told the study residential schools imparting primary,
teams that drop-out rates of students in middle and secondary level education
the Ashram Schools is low since the parents to ST boys and girls. There were 552
are aware of the importance of education. Ash-ram Schools for tribal students in
Maharashtra. The average number of
However, their concern was that the students
students per school worked out to 375 and
do not return from vacations on time and
the sex-ratio of students was 907 females
remain absent for long durations when they go
per 1000 males which is an indication of
home. Very few tribal students pursue a higher a fairly a good sign of more and more girls
education after schooling. The reason may be getting education almost at par with boys.
lack of employment opportunities.

Many Ashram Schools are located deep inside forest areas. Mishaps or encounters with wild
animals are likely to happen. Most Ashram Schools are not equipped with even basic amenities
like toilets, bathrooms, safe drinking water, etc. The study teams found the Ashram School
infrastructure be in a dilapidated condition. Most schools are unable to maintain even basic
hygienic conditions. These schools face several problems during the rainy season. In fact, the
study teams observed that most of the Ashram Schools looked like traditional tribal huts and
many schools did not have even benches/desks for the students. Even high school students had
to sit on kachcha (earthen) floor in the classrooms. There were no tables and chairs for studying
and cots to sleep on. Facilities like TV which would help students to learn about the world
outside were absent. As a result, there is very little opportunity for the students to develop a
modern worldview.

The Ashram Schools staff claimed that the indifferent response of the Public works Department
resulted in delays in maintenance and repairs as well as construction of new facilities. We
recommend that a separate department be created in the PWD that will be made responsible
for maintaining the Ashram School infrastructure and carry out good quality repairs on time. The
Panchayat Samiti can also be made responsible for maintenance and upgrade of Ashram shalas
for which funds can be provided from the untied funds or any other scheme.

Some Observations made by the Study Teams

1. ITDP officers are not adequately informed about what is happening in the administrative
departments and how TSP funds are being utilized. There were no suggestions from
the POs for a monitoring system or even gathering information. The TDD/ITDPs need to
have greater powers to monitor or at least to assess the programmes of Administrative

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departments and report to TDD for improvements and corrective measures; otherwise the
very purpose of TDD taking the TSP on hand is defeated.

2. There should be a mechanism for exchanging information and performance statistics

between TDD and the administrative departments. Thirdly, there should be a mechanism
for monitoring the technical aspects of implementation of tribal development programmes.

3. Fourthly, as the field teams observed, in many villages the facilities provided are sub-
standard because of which they are often unused or underutilized, resulting in wastage
of resources. For example, in one village, the Anganwadi centre built under TSP funds is
dilapidated and remains unused.

4. Fifth, the planning is not based on local needs of the community, and in fact, the TDD or
ITDPs do not have any statistical information, specifically performance statistics, beyond
the census-based population statistics, about the tribal communities, based on which
future planning could be made in realistic and efficacious manner.

5. Sixth, so, there should be an in-built mechanism to generate statistical information to assess
the status of the tribal communities periodically and to fine tune plans and strategies.

6. Seventh, the field teams felt that, like the Chandrapur ITDP, other areas should also try the
“Yojana Labh Card” to prevent duplication of benefits to the same beneficiary or family.
ITDP should digitize the existing data, for the creation of a database of beneficiaries,
including the beneficiaries of administrative departments.

7. TDD officials also felt that it is necessary to recruit personnel in the Tribal Development
Department (at all levels) in a time-bound manner to fill the vacancies and increase
motivation and capacities of existing staff. At the same time, deputing officers from other
departments should be discouraged.

8. Some schemes are duplicated and run by more than one department. It serves no useful
purpose to run the same programme under different names by different departments and
with different budgetary allocations and subsidies. Examples of such schemes are: Indira
Awaas Yojana, Adivasi Gharkul Yojana, Shabari Gharkul Yojana, Pardhi Gharkul Yojana,
Gharkul for PTGs, etc. The performance and impact can be significantly improved if such
schemes are merged and run by a single department on a regular basis.

9. Considering the present state of affairs in the Ashram Schools, it is suggested that some
of the poorly performing and low student strength Ashram Schools be merged with the
bigger or nearby Ashram Schools to make them viable and effective.

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 79

10. There are some TSP schemes which are practically not feasible to implement or expensive
for a beneficiary to sustain once benefits are received. For example, in Swabhiman Yojana,
Government cannot obtain fertile lands at such a low rate (as specified by the government).
In the scheme by Animal Husbandry of distribution of milch animal, six cows are given to
one BPL beneficiary and the family cannot afford to take good care of the animals. Thus,
it is suggested that there should be enough flexibility in the schemes so that depending
on local situation the schemes can be implemented effectively and beneficiaries can reap
economic benefits.

11. There are some TSP schemes whose

Delegation of powers to the
implementation is not feasible, or the benefits
institutions and the POs and
they deliver cannot be maintained by the District Collectors will result in
receivers. Under the Swabhiman Yojana scheme, flexible and quick response of the
for example, the Government cannot obtain fertile administration to the needs of
land at the low rates specified by the government. tribals. The present centralization
In the Animal Husbandry Department’s scheme of powers leads to delay,
arbitrariness, and can potentially
for distribution of milch animal, six cows are
cause rent-seeking practices.
given to each BPL beneficiary family. The families
cannot afford to take proper care of the animals.
Therefore, it is suggested that there should be
sufficient flexibility in the schemes so that, depending on the local situation, the schemes
can be implemented effectively and beneficiaries can reap the economic benefits.

12. There were also complaints from a few officials in TDD about inhibiting factors like the
lack of facilities like intercom, phone, internet, computers, and shortage of vehicles (or
suitable vehicles) to reach inaccessible tribal and hilly areas for field visits. To mitigate such
problems, fund allocations and arrangements must be made to provide better facilities in
offices and field visits.

13. To run a large system with multiple levels and remote units (tribal areas), it is necessary that
administrative and financial powers are sufficiently delegated. Delegations must be backed
by appropriate monitoring, MIS and reporting structures. For example, in Ashramshalas
there are very few administrative and financial powers at the institution level. This leads
to delays even for minor interventions. Most tenders for supplies are concentrated at the
ATC level. Similarly, the warden or principals have to make reference to the PO, ITDPs and
sometimes to the ATCs for minor repairs.

14. But the financial powers at the PO, ITDP levels are also inadequate. Most powers of tenders
and purchases are also concentrated at the Commissionerate and ATC levels. This results

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80

not only in corruption and malpractices, but also to delays in supply, and a one-size-fits-all
approach. While the powers of administrative sanction have been delegated to the District
Collector, there is still a tendency by the department to send project proposals to the ATC
for approval. Not only does this reduce the authority of both the DPC and the District
Collector, it also leads to unnecessary delays in approvals.

15. A direct impact is on the low rates of expenditure in the first half of the Financial Year. It was
noticed that in TSP, most of the expenditure takes place in the last quarter of the financial
year.

16. Manpower available for implementing and monitoring schemes is limited. Implementation
issues often arise from the lack of capacity of the system. The PO, ITDP system is often
called to deliver services (agriculture, infrastructure, individual benefits), which are being
simultaneously delivered in other schemes by other departments working in parallel. This
leads to duplication.

17. The POs lack seniority and senior IAS officials are not present to head all projects. The
present structure of service delivery, scheme design, and institutional mechanisms is
not at all in line with the legal mandate of PESA. Thus, the tribal sub-plan is controlled, if
at all, only partially by the appropriate levels of Panchayati Raj. There is also very limited
control by the Gram Sabhas and the appropriate Panchayats over the institutions of the
tribal department.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 Chapter 6
TSP and Administrative departments
The Tribal Sub-Plan is broadly divided into two categories namely State Plan and District Plan.
The government guidelines say that the state plan will be planned at the state level and the
district plan will be planned at the district level as per the recommendations of the Sukthankar
Committee. District Administrative departments are entrusted with the responsibility of
identifying priority areas and recommending TSP schemes. Accordingly, the District level Tribal
Sub-Plan is planned separately as per the requirements of the local community, and funds are
allotted to Administrative departments at the district level for the effective implementation
of TSP schemes. As per the GR of December 16, 2009, changes have been brought into the
planning of District Tribal Sub-Plan. According to these guidelines, the DPC should consider
certain aspects such as human development indicators, fundamental requirements of district,
social needs, social and physical growth of district, while framing the annual district tribal plan.

There are more than 15 departments which are directly involved in the implementation of
TSP schemes at district level. Some Administrative departments get funds directly from the
state for large scale community programmes such as the Irrigation department, Public Works
Department (PWD), Maharashtra State Electricity Board (MSEB). On the other hand, most of the
departments, which run individual family or village level schemes, receive funds at the district
level. Some of the departments that receive funds from the state plan also receive funds from
the district plan for small scale programmes at village level. The planning and implementation
of district schemes is more or less similar to the usual implementation of programmes by
the administrative departments with slight variations. For example, the subsidy for some
programmes under TSP is higher than if it were offered otherwise.

Planning for Funds

Interviews with Administrative departments
The Administrative departments are revealed that often planning for annual
provided with a certain share of TSP funds. fund are made on the basis of population
Their minimum and maximum ceilings size and the demand of the previous year.
are defined in terms of percentage of total In case of DRDA, an arbitrary target is set
for Indira AwaasYojana and, accordingly, the
allocation to TSP. Every year, the TDD asks
department demands a certain amount of
each department to submit its demand. All
funds. Some agricultural officers mentioned
the administrative departments at block level
that they review the demand for a particular
send in their proposals and requirements scheme and based on the waiting list for the
for the following year to their respective scheme, they plan for potential demand. As
departments at district level where they are such, there is no standard for making demand
consolidated and sent to the nodal ITDP. for funds.
82

The demands from different administrative departments are consolidated at ITDP level and
presented to the DPC. The DPC, earlier known as DPDC, reviews the demands and formulates
it as a district Tribal Sub-Plan and forwards it to the Tribal Development Department with
the administrative sanction of the District Collector and other signatories. The DPC has the
responsibility of finalizing the draft district annual tribal plan. The Collector holds the power
of administrative sanction at the district level as per the new guidelines provided in the GR
issued on December 16, 2009. The district Tribal Sub-Plan for all the districts will be finalized in
a meeting conducted at the state level by the TDD, based on the allocation of funds for the TSP
by the state planning department.

Interviews with different officers of Administrative departments revealed that often planning
for annual funds/demands are made on the basis of population size and the demand of the
preceding year. Some officers mentioned that they review the demand for a particular scheme,
and based on the waiting list for the scheme, they plan for potential demand. On this basis they
decide the number of beneficiaries for the following year and demand funds accordingly.

There is a slight variation in the planning process for departments like PWD, Irrigation or MSEB.
At block level, these departments are supposed to carry out only small scale projects. Their
proportion of share of funds in TSP is predetermined they receive their share on this basis.
From the discussions we had with the officials of Administrative departments, we learned
that, generally, the proportion of funds for each department is predetermined irrespective of
the demands made in the proposals sent to the ITDPs. However, it was also observed that the
demands of the departments are more or less in line with the minimum or maximum ceiling
given to them. This means that, often, planning is not based on community requirements but
on the predetermined amount of funds. This practice need to change urgently so that funds and
schemes are made to fit in people’s plans and not the other way round. The process of planning
should not be influenced by availability of funds.
The District Collectors, Zilla Parishad
Most of the CEOs, Collectors and other district level
CEOs, and other district level
officers mentioned that they had a minimal role when it
officers interviewed mentioned that
came to TSP planning. The officers maintained that the they had a minimal role when it
TSP planning that takes place at state level determines came to TSP planning. The officers
the schemes and quantum of funds. Their role is just to maintained that the TSP planning
send demands for funds as indicated to them. They felt that takes place at the state level
that they are mainly implementing agencies and not determines the schemes and
quantum of funds and their role is
planning agencies. One CEO maintained, “CEOs and
just to send demand for funds as
Collectors are positioned in the middle of the hierarchy
indicated to them. They felt that
and there are multiple agencies above and below
they are mainly implementing
them. Our major responsibility is to act as a bridge agencies and not planning agencies.

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 83

between TDD and other administrative departments, and ensure their smooth functioning at
the district level.”

Discussions with Block Development Offices showed that they play an important role in
implementing the programmes but their role in planning was limited to sending proposals
(demand for funds) to respective ITDPs and to district head offices. Most of the officials said
that they are implementing agencies of various schemes of which the TSP is only a small
part. Therefore, according to them, TSP does not attract special attention and is just any
other scheme they implement. They also said that, for each program, say, for example free or
subsidized housing, they pool resources under different sub-plans for a particular scheme. They
fulfil the targets for the scheme and account the expenditure under different sub-plans. Thus,
the departments are not implementing the schemes separately; they only maintain separate
performance statistics for each sub-plan.

Flow of Funds to the Administrative departments

As discussed above, according to the Administrative departments, it is the responsibility of TDD
to finalize the plan. Once the amount for TSP is budgeted at the state level, it is channelized
according to the guidelines. By the end of June-July of the current financial year, a proportion
of the budgeted funds (about 30 percent) is made available through the budget distribution
system (BDS) under various heads. In some cases, the funds are allocated in instalments, while
in others lump sum funds are distributed. In Chikhaldara block, it was observed that, generally,
the first instalment of funds is received only by end of July-August. The second instalment is
released by January-February (next year), but only after 60 percent of the first instalment has
been spent.

Funds are made available to district administrative departments through BDS as per demand.
The cash does not flow below district level. The block level offices receive goods, or equipment
and not cash. Only the departments which offer cash incentives/ rewards to the beneficiaries
can issue cheques. Alternatively, the amount is directly deposited into the beneficiary’s account.
Block level Administrative departments do not deal with cash.

Re-appropriation of funds happens in the second half of the financial year. As per the GR of
December 5, 2011, the core and non-core sectors are defined under TSP, while re-appropriation
of funds from non-core sector to core sector can be made but the reverse is not permitted.
Likewise OTSP funds can be diverted to TSP area, but TSP area funds are to be spent within the
TSP area only and cannot be diverted to OTSP areas. Further, the TSP funds are non-divertible,
which means that funds for TSP area cannot be diverted to non-TSP areas. Even within TSP areas
funds cannot be diverted from one district to another. Discussions with state officials revealed
that re-appropriation of funds are made only with the consent of the TDD.

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When asked if there were instances of fund diversion, the officers replied in the negative and
claimed that the guidelines are being followed strictly. However, it is a common practice that
funds are transferred from one department to another after re-appropriation, but they remain
in TSP’s ___domain.

Most of the officers said that the funds were sufficient and received on time. One of the CEOs,
who were earlier Project Officer in an ITDP, mentioned that Administrative departments receive
funds on time but funds to ITDPs from TDD often get delayed. Therefore, he felt that the
problem lay in the TDD’s system. One Collector said that there was a gap between demand and
availability of funds. Demand is generally on the higher side but budgetary provisions are made
within ceilings.

Selection of Beneficiaries by Administrative departments

Benefits of TSP fall in three categories: individual benefits, family benefits and community
benefits. The selection procedure is in accordance with the nature of benefits. While community
benefits are determined more by the department and less by the community (through
representations), the selection of beneficiaries for individual benefits are characterized by the
criteria laid down, such as BPL family, student and so on. However, the usual procedure is as
mentioned below.

For the selection of individual/family beneficiaries, the respective departments inform villagers
about the schemes and call for applications. Programme/ scheme publicity is given through
various Information, Education and Communication (IEC) activities with the help of the Gram
Sevak and the Gram Panchayat. The applications are collected by the Gram Sevak and scrutinized
by the Gram Panchayat office and then sent to the respective administrative departments at the
Block Development Office. These applications and accompanying documents are verified again
at the BDO level. In case of agriculture and animal husbandry departments, field inspectors
are expected to visit applicants, verify their socioeconomic status and submit a report to the
department. The BPL list is referred in order to determine the economic status of the applicants.
The list of selected beneficiaries is then forwarded to the district level office. At the district level
the list may be further shortened and beneficiary list is finalized. Those not in the final list is kept
on a waiting list for the following year.

The reach of information about the benefits depends on the coverage of villages by the GramSevak.
The reach of information to remote villages, and receipt of applications from them is limited. In
many cases, the deadline is over by the time information reaches remote villages. Even within the
panchayats, the information is disseminated more in the main village where the panchayat office
is located than in the hamlets located some distance away. With the adoption of a concept similar
to ‘first come first served basis’, people from the villages that surround the taluka and panchayat

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villages are the ones who apply first and receive the benefits, and tribal people from remote areas
largely remain deprived of the benefits.

The distribution of benefits is generally done at the block level. Some departments such as the
Agricultural and Allied departments distribute the benefits in the villages. Other departments
ask the selected beneficiaries to collect their goods from the office. Cash rewards are deposited
into the individual’s bank/post office account.

To prevent duplication of beneficiaries, the names of all applicants are crosschecked with a
database of beneficiaries of the previous years. One BDO maintained that “We use all means to
confirm that the benefits reach those in most need.” Another BDO mentioned that the protocol
was followed strictly and all documents scrutinized thoroughly. However, they admitted that
there were cases of duplication. An officer from the Animal Husbandry Department stated,
“Although we go by the rules and regulations, there are cases of duplication or misuse of benefits
such as the selling of goods or animals received by beneficiaries to a third party.”

Monitoring and Evaluation of/by Administrative departments

One of the many important points that came
The performance of the Administrative
up repeatedly during the interviews is that
departments has not been evaluated or
the administrative departments are the monitored by the Tribal Development
implementing agencies and ITDPs are expected Department. The monitoring and
to monitor their work at different levels. evaluation, if any, is restricted within the
Administrative departments are expected to administrative department itself. Though
monitor their programmes at the field level. occasionally the district collector and
It is the responsibility of the departments to CEO, Zilla-Parishad review the activities of
administrative departments, they do not
send fund utilization certificates (UC) and other
attach special attention to TSP pro-grams
progress reports to ITDP. An audit is conducted
as the number of programs reviewed is
in every department, and the list of beneficiaries often large.
and monthly progress reports are forwarded to
the ITDPs. Contradicting this, while interviewing
ITDP officers, we were informed that ITDPs have to send reminders to the administrative
departments to submit the UCs. It was also reported that, sometimes, ITDPs receive neither UCs
nor the list of beneficiaries; but they themselves seldom call for such reports, the only exception
being the expenditure statement.

Unfortunately, the performance of the Administrative departments has not been evaluated or
monitored by the Tribal Development Department. The monitoring and evaluation, if any, is
restricted to within the department itself. Though the CEO of the Zilla Parishad and BDO often
conduct review meetings of their departments, the reviews often included all schemes and

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programmes and were not specific to the TSP. According to the officers, as they have to look
into many schemes, they are unable to give special attention to every scheme. However, they
did admit that they sometimes give particular attention to a few programmes/schemes if they
receive specific instructions to do so. All departments reported that they conducted monthly
meetings to review progress.

IEC Activities by Administrative departments

According to the officers of the Administrative departments, IEC activities are conducted through
the print media, Gram Sabhas, Melavas and public announcements. However, the field teams
noticed that there were very few IEC activities or awareness campaigns being conducted in villages,
especially by the administrative departments. The reach of IEC activities is very limited. Some BDOs
said that they do not conduct IEC activities; instead they only send information letters (about the
schemes) to Gram Panchayats who are then expected to conduct awareness campaigns.

One District Agricultural Officer said that people are generally aware of the schemes because
the departments send flyers to the villages and also call for applications. A Block Development
Officer also voiced a similar opinion saying that tribal people are more aware and knowledgeable
now than they were earlier. Various departments provide information through the Gram Sabha,
posters, banners and people’s representatives.

The general observation from the field visits was that, besides distributing flyers, sending
information about their schemes and informing the Gram Sabha, the administrative departments
are not actively involved in conducting IEC activities in villages.

Issues and Suggestions

During the study, many officers highlighted the issues they were facing and suggested some
changes for the effective implementation of TSP schemes and programmes.

The officers felt that the planning process is not goal/outcome oriented and that it was based
only on the size of the population. There are local variations in TSP areas and it is necessary to
understand the requirements and expectations of the community before planning. Schemes
and programmes are designed by the higher authorities and it was suggested by the officers
that the administrative departments at the block level also be consulted before finalizing the
TSP schemes and programmes.

Most officers from the Administrative departments also said that although the Tribal Development
Department has delegated the work connected to various schemes and programmes to the
administrative departments, the TDD lacked coordination with the departments track the
progress and performance.

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Many officers were of the opinion that, over the years, the a few schemes that are being
implemented by the TSP have become irrelevant to today’s needs. Examples of such schemes
are tailoring courses and the distribution of sewing machines. They suggested that schemes for
benefiting individuals should focus on employment generation and job opportunities.

Tribal societies are primarily agrarian societies and, therefore, there should be more agriculture-
related schemes(as examples, dairy farming, fish farms, animal husbandry, irrigation, levelling of
land, horticulture, guidance on good farming practices, easy access to credit, water facilities, etc.).
As a matter of practice, the Gram Sabha/Gram Panchayat should be supported and mentored
so that they are able to identify areas which require skills building of tribals according to their
need, and which will enable them to access better employment opportunities or become better
entrepreneurs. The focus should be on arresting forced migration.

A few officers who were POs earlier also expressed the belief that the Project Officer’s position
is a weak link because he/she has only nominal powers. The POs are not in a position to exercise
their authority over other stakeholders. For this reason, they should be given more powers and
the autonomy to directly deal with administrative departments.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 Chapter 7
Community Perceptions
This study also attempted to understand the perceptions of the tribal community
about the tribal welfare schemes/programmes and the working of the Tribal
Development Department. For this purpose, one block from each ITDP was selected
from the four ITDPs that were chosen for this study. From the selected blocks, two
panchayats were selected, and from each of panchayat, two villages were selected.
Thus, a total of sixteen villages were visited for the purpose of data collection. Community leaders
were interviewed and in every village, one FGD was conducted separately with women and men.

Verification of Sample Beneficiaries

The field teams sought the list of individual and/or village beneficiaries from the ITDP Office
(PO), Block Development Office (BDO), Forest Department, Taluka Agriculture Office and other
Administrative departments for the preceding one or two years, either for their entire area or
at least for the selected panchayats/villages. However, the field teams could obtain the list
of beneficiaries from the ITDPs and from a few Administrative departments only. The ITDPs
provided data for beneficiaries of schemes like Kanyadan Yojana, Diesel/Electric Pump sets,
Ashram school scholarships and beneficiaries under the Nucleus Budget. For individual benefit
schemes, lists of beneficiaries of Indira Awaas Yojana, Diesel/Electricity pump sets, Distribution
of PVC Pipes, consumption loans, Matrutwa Anudaan Yojana and NREGA were obtained from
the respective departments.

After obtaining the lists, the field teams verified a few cases in the field/villages, which were
found largely genuine. Here, ‘Genuine’ meant that the beneficiaries mentioned in the lists
were traceable. In a few cases, the beneficiaries admitted that they sold the diesel or electric
pump sets to other farmers for various reasons such as not being able to afford the cost of
diesel, poor electricity supply in the area, lack of water sources nearby, etc. In the case of village
benefits such as link roads and street lights, it was found that they existed in the villages the
teams visited, but the quality of the work was poor. The field teams also looked into the lists of
beneficiaries of Indira Awaas Yojana provided by the Block Development Office, and NREGA and
LPG beneficiaries of the Forest Department. In general, beneficiaries in the lists given to the field
teams were largely traceable and found to be genuine.

Perceptions of FGD Participants

The FGD participants from all the villages were able to list a few or many schemes/programmes
run by the ITDPs and Administrative departments. The schemes that the most FGD participants
were aware of were: Shabari Gharkul Yojana, Indira Aawas Yojana, Khavati loan (consumption
90

loan), Thakkar Bappa, diesel/electric pump sets, The people of the villages reported that
spray pump, pair of oxen, LPG supply and NREGA the Gramsevak and other field officers
work (by the Forest Department) and Janani from the ITDPs rarely visited the villages,
Surkasha Yojana (by the Health Department). especially remote villages. It would be a
These schemes were recalled easily and often. good idea to have separate Gram Sevak for
such remote villages/panchayats so that
However, in a few villages the participants were
they are bound to cover the remote areas.
not aware of the tribal welfare schemes. People
This will ensure that there will be greater
from villages of Itwai and Bodhu, which are
number of Gram sevaks and other staff in
deep inside the forests and not connected with areas which are remote, harder to reach,
pucca roads, did not know much about the tribal and need greater commitment of time
welfare programmes and they listed only four to from the staff. The population norm and
five schemes. The FGD participants in most of the distance norms of all institutions should
villages were not aware of the name or concept be revised in response to the geographical
challenges that such places pose.
of TSP.

As regards gender-wise awareness, more men than women were aware of the schemes. However,
more women participants than men were aware of supplementary nutrition, immunization,
health check-up, Janani Surkasha Yojana, Matrutva Yojana,
There is a need of not
only creating capital Kanyadan Yojana and sewing machine training schemes. In all
assets but also ensuring the 16 sample villages, Khavti loan, Indira Aawas Yojana, diesel/
that these assets are electric pump set schemes were availed by many families and
maintained. For this, the people were largely in favour of them. The people from the
larger administrative villages which did not have proper road connectivity (example,
costs, and a percentage
Dahedri village) and interior villages (example, Bharugvhan
of the Plan for recurrent
village) said that they did not have transport facilities to go
expenditure will have to
to the taluka or PO office or district offices. They reported that
be set aside.
the Gram Sevak and other field officers from the PO office
rarely visited their villages. It would be a good idea to have a
Gram Sevak for every Panchayat so that they may cover all the villages coming under the
panchayat. This will ensure that there will be a greater number of Gram Sevaks and other staff
in areas which are remote, harder to reach, and need greater commitment of time from the
staff. The population and distance norms of all institutions should be revised in response to
the geographical challenges that such places pose.

With respect to IEC activities, only a few FGD participants reported that they came to know
about the schemes/programmes through Melavas and books/pamphlets distributed by the
TDD (project office) or administrative departments. In a few FGDs, some participants reported
that the department made public announcements and/or distributed pamphlets about specific
schemes and programmes in the weekly markets, which they found informative and convenient.

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Interface of the beneficiaries However, this was not a routine practice and was done only in a
with the system is arbitrary, few villages. However, the interviewed officials did not mention
lacks certainty, and leads about the announcements in weekly markets.
to distrust. The use of
Information technology Regarding the officials’ visit to the villages, participants of
to resolve this issue is some FGDs (Kotmi, Thanavihir, Chargaon, Khedi) reported
necessary. that the Gram Sevak, ANM and ASHA visited villages
on a regular basis, but the agriculture extension officer,
personnel from the BDO office, field officers from ITDPs
visited the villages only when they had to distribute benefits diesel pumps, Khavati loan
etc. to the villagers. There were no routine or periodic visits from these officials. Most of the
women FGD participants also admitted that the health worker, ASHA workers, Anganwadi
workers generally visited their villages, but officers of the Panchayat Samiti or BDO office
hardly made an appearance. The main takeaway from most FGDs was that the villagers were
unhappy with the programme functionaries.

Development Activities in Villages

In nearly all the sample villages, the field teams found evidence of a number of developmental
activities. It was also observed that the tribal communities in the villages were using the benefits.The
developmental activities included road construction under Thakkar Bappa Scheme, construction
of overhead water tanks (in a few villages only), stand-post or public water taps, hand pumps,
community wells, houses under Indira Awaas Yojana, community halls, drainage and sanitation
facilities, electrification and Anganwadi Centres. In some villages, however, the facilities were
underutilized or unused because of the poor quality of work. For example, the hand pumps in
some villages were non-operational, in others the water supplied through stand-posts was not
potable (the water was usually drawn from an open well and piped to the taps without filtration
or treatment). In some villages, the Anganwadi centre and other buildings constructed under
various schemes were in a dilapidated condition and were not usable. The examples described
here have not delivered benefits to the community and point to an avoidable wastage of resources.
Therefore, creating capital assets is not enough; they must also be properly used and maintained.
For this purpose, a percentage of the Plan amount for recurrent expenditure needs to be set
aside and allocated to the departments concerned.

People’s Experience in applying for TSP Schemes

The FGD participants complained that they are never made aware of their applications (for
benefits under various schemes). Many said that they apply for the same schemes every year
without a positive result. The women participants were particularly vocal on this point. They
said that they live far away from the ITDP or BDO offices and it was not possible for them to

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make frequent visits to follow-up on their applications. Even when they did visit the offices, the
officers do not guide them properly or provide the right information. In fact, the participants also
said that they were badly treated and denied appointments. Those who received the benefits
said that they had to apply several times and wait for at least two to three years.

A greater concern was that many of the FGD Many FGD participants complained that
participants had not received any benefit (or they did not receive a single benefit
informed about the status of their applications nor did they hear a word from ITDP
by ITDP or the administrative departments in or Administrative departments about
the status of their applications, even
spite of applying several times). They expected
after applying several times. The heavy
that, after their applications are submitted,
documentation involved was very difficult
the respective must convey the status to the
for villagers and they often approached
applicants. Alternatively, there should be system agents, who were not trustworthy. It
for tracking their status. The participants also is suggested that facilitation centres
stressed that it was not possible or affordable for involving educated youth from within
the poor people to apply repeatedly and visit the the community may be setup at Gram
offices to follow-up on their applications. One Panchayat offices.

participant expressed his disappointment thus,

“We waste so much money, energy and time to apply for benefits but at the end we don’t get
anything. We have been waiting for years but they don’t even tell us if our application has been
accepted or whether more documents are needed”. They lamented that it was very difficult for
them to get benefits from tribal welfare schemes and programmes, something that is theirs by
right.

We recommend the implementation of an online tracking system that can be set up at all ITDP
offices for keeping records of applications received, action taken and, in case of a delay or denial,
the reasons for action/ non-action.

Many FGD participants also said that in spite of being eligible for the benefits, they often chose
not to apply because the process involved a lot of documentation, which makes it difficult for
them. Participants stated that they were often asked to submit what they felt are “unnecessary
documents”. The documentation needs compel the villagers to take the help of ‘agents’, who
are not trustworthy. Therefore, we suggest that facilitation centres operated by the educated
youth of the community be setup. For the convenience of all this facility can be established at
the Gram Panchayat office.

Participants living in the interiors said that many schemes or programmes do not reach them.
In fact, they claimed that they rarely witnessed any IEC activities in their villages. If and when
they do come to know of schemes that they could apply for, the deadline for submission of

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the application would be over. In effect, the needy and deserving remain deprived of benefits
because of their remoteness, and people living at convenient distances from the ITDP/BDO
office/Gram Panchayat benefit the most. It needs to mention here that many of the beneficiaries
received information about the schemes from agents or mediators. On occasion, villagers visiting
ITDP offices would share the information gained with other community members. Otherwise,
the IEC activities themselves seem to play a very small role in creating awareness. Very few
people from the selected villages reported attending melavas or other awareness campaigns
organized by ITDP.

Health Services
In almost all the villages, women participants expressed the opinion that medical services
were not easily accessible. They felt that, for health and medical services, they had to travel to
the taluka or district place and, for that, they have to incur travel expenses and often forgo a
day’s wages. For this reason, the women visit unqualified practitioners and, sometimes, even
the Bhundo (witch doctor). Consequently, the health status of the people remains poor. Even
for antenatal check-up and delivery, women often avoid going to hospital.

In many FGDs, the women participants admitted that the ANMs visited their villages, but also
complained that the services were very poor and restricted to immunization (TT injection, IFA
tablets and child immunization), which, too, did not happen regularly. In one FGD (Barugavhan),
women participants said that whenever they call for the hospital’s ambulance, it would invariably
arrive late and worse, they would be charged for it. During the course of the study, the field teams
visited a number of Anganwadi centres. In some places, it was noticed that the measurement
methods used by the health worker and/or Anganwadi worker were inappropriate and also
that registers were not maintained (Barugavhan). But in some FGDs, the women participants
expressed were satisfied with the services of the ANMs and Anganwadis.

Selection of Beneficiaries
Male participants in some FGDs said that they did not know the criteria and process of selection
of beneficiaries by the Tribal Development Department or by the administrative departments.
They said that whenever there was an announcement seeking application, they applied if they
felt so inclined.

The villagers were asked to explain the process of selection of beneficiaries. The described the
process as follows:

After the villagers receive information (from various sources) about ITDP schemes, the
applicants directly approach the ITDP to submit their applications. They have to get copies of the

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accompanying documents attested by the Gram Sevak. Due to the perception that the process
involved heavy documentation (as mentioned earlier), which was beyond their capacity, they
preferred agents to fill the application form and compile the documents. After submission of
the documents, the field inspectors visit the applicants personally for verification. For claiming
benefits from administrative departments, the procedure is slightly different. Here, the Gram
Sabha is consulted and a tentative list of beneficiaries is read out in the Sabha. However, this
happens rarely.

The participants believe that there is considerable political interference in the selection of
beneficiaries. They said that those who hold political power or have money to influence,
have easy access to the schemes and that they received the benefits preferentially. One BPL
cardholder, who admitted that he was well-off, said that he wanted to access the benefits offered
by government schemes for which he bribed the BPL survey staff and received a BPL card. The
participants felt that the selection of beneficiaries should be done at the Gram Panchayat level
so that people come to know about the process of selection of beneficiaries. They said that as
of now, the Gram Panchayats have no role in the selection of beneficiaries except for receiving,
and sometimes checking the documents and forwarding the applications.

Usefulness of Benefits
In most FGDs, participants reported that those who received diesel pumps and electric pump
sets for agricultural purposes were using them. But some beneficiaries had sold their benefits in
the market or to other farmers. Beneficiaries of Shabari Gharkul Yojana or Indira Awaas Yojana
said that they were more comfortable in living in pucca houses. Those who got the diesel/
electric pump sets, spray pumps, or oxen said that they were using them regularly. In most of
the villages, the beneficiaries of khavati loans (consumption loan) reported that it helped them
with their household expenditure. Very few had applied for cooking gas connections; some
received them from the Forest Department and were using them. A significant observation
was that very few participants reported that NREGA work carried out by the Forest Department
helped them earn daily wages.

When asked about development activities in their villages, the participants responded positively.
They said that their villages are much better places with proper resources and facilities. Elderly
participants expressed that life was more difficult earlier; but now, due to all the programmes,
schemes and facilities, it has become easier for the current generation. They were pleased to be
witnesses such changes. Elderly women expressed satisfaction over facilities like electricity, hand
pumps, wells and internal roads; they recalled that they had to walk long distances for water or
there were no schools close by during their childhood. Due to the Thakkar Bappa scheme, they
now have pucca roads; and some villages even had community halls built under the scheme.

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Overall, the participants appeared to be happy with the development interventions in their
villages but they also felt that the available facilities were still inadequate and/or the quality
of benefits/facilities provided was poor. For example, FGD participants from Malghar (Pada)
complained that road construction work was sanctioned for 1000 meters under the Thakkar
Bappa scheme, but the contractor constructed only 500 metres of road, which too was of very
poor quality. In other villages we were told that the roads constructed got damaged within a
year of its construction.

Migration for Livelihood

Many tribal villages/hamlets are located in remote areas near the boundaries with adjoining
states. The study teams learned that villagers migrate to nearby districts or the neighbouring
states in search of livelihoods. During the agricultural season, they work on their fields or in the
fields belonging to co-villagers. In the off-season, they migrate to earn a livelihood. Madhya
Pradesh and Telangana (earlier Andhra Pradesh) are the nearest states to which people migrate.
The migrants travel in groups and find work in building construction sites, road construction
projects, coal-making, wood cutting, etc. Migration one of the reasons why many tribal people
are not aware of the schemes and programmes run by various departments. Participants in
some FGDs reported that the villagers preferred agricultural or non-agricultural work to NREGA
work because of the low wages and the difficulty in getting the wages on time. In only one FGD
(Chikhaldara) the participants reported that they received good wages for the work they did for
the Forest Department under NREGA.

Participants in FGDs, who migrate to other places in search of work, said the Ashram school/
hostel schemes are very useful as they could leave their children there without much worrying
about disrupting their education. This arrangement also allows all working family members to
migrate in search of livelihood elsewhere.

However, the point of concern here was that such families are often excluded from the BPL and
other enumeration exercises if they were away during the survey. Migration is a reality in the
tribal communities. The TSP does not have separate provisions that offer people opportunities
that can prevent them from migrating. Going beyond the MGNREGA, some of the additional
measures that could be considered are more rural credit before the distress months, greater
financial incentives for school going children and their families, and also to women who chose
to stay back in the village.

Expectations of the Community

We asked community members of their expectations in our FGDs. The participants said
that they were satisfied with the changes that had taken place in their villages due to the

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efforts of the Tribal Development Department and Administrative departments, but they
felt that they were insufficient and wanted better facilities. Many villagers complained
that although they figured in the BPL list, they had not received pucca houses under the
Indira Awaas Yojana. Women expressed their concern over sanitation and tap water. In
many villages there was no tap water connection, women wanted tap connection because
it was cumbersome and time consuming to carry pots of water on their heads from the
hand pumps, which were often located at a distance from their homes; and besides, every
summer, they faced scarcity of water. While young mothers desired that health facilities
should improve, ANM, ASHA and Anganwadi workers felt that the community women were
reluctant to use the health facilities that were already available. But the women complained
that the facilities provided at the PHC/Rural hospitals were not of good quality, that doctors
were not available, and also that they did not take good care of patients and therefore, they
did not prefer institutional deliveries.

The FGD participants also wanted to a school in their villages or at least an Ashramshala close
by; they would prefer to enrol their children in the villages instead of admitting them in some
distant place. The FGDs also revealed that NREGA was not doing well in their villages. In some
places, no employment was created under NREGA, or it was made available only in a few villages
and that too for a few days only. The Participants expressed their disappointment over the
matter. That wanted the MNREGA to provide employment throughout the year. Transportation
was another issue raised in the FGDs.

Evidently, there are many issues ranging from education, employment and health to
infrastructure, and access that need to be addressed.

The investigation suggests a number of steps by

The analysis of the perceptions of the
which TSP can serve the tribal community: community and the census data indicate
that there exists a gap in housing, left
Housing: Analysis of the perceptions of the
out habitations not getting access to
community and the census data indicate that institutional sources of water, and the
there exists a gap in housing. At present, multiple like. There appears to be a need for
agencies implement housing schemes. The interventions below the lowest facility
DRDA carries out IAY and the PO, ITDP monitors levels (sub-centres and Anganwadis)
the TSP component of tribal houses. The report and to have village specific plans in high
mortality, morbidity areas. Further mal-
suggests the merger of these two schemes
nutrition is one of the prime problems in
with the TSP as a funding agency, and focus on
tribal areas and there is enough scope to
removing homelessness in an achievable period
expand funding under TSP and expanding
of time. At the same time one of the issues that the food basket for children, adolescent
the system is faced with is the lack of manpower girls, and expectant mothers.
for monitoring the processes.

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Water Supply: The report identifies two important issues. There are excluded habitations that
do not have access to institutional sources of water because of definitional issues. Here, TSP can
serve as an additional component to cover the excluded and sparsely populated habitation.
The norms of expenditure for remote, geographically challenging tribal hamlets also need to be
revised and more provisioning done in TSP. This will help to avoid the one-size-fits-all approach
that is presently in existence.

Health: Since tribal areas are remote the per unit norms of institutions, funds, and manpower
need to be made flexible to account for the difficulties in services delivery in such areas. There
also a need for interventions those go beyond the lowest facility levels (sub-centres and
Anganwadis) and to have village-specific plans for high mortality, morbidity areas.

Nutrition, ICDS and PDS: It is mandated that at least 3% of the district TSP should be spent on
nutritional interventions. This is not happening in many districts. Considering that malnutrition
is one of the prime problems in tribal areas there is enough scope to expand funding under TSP
and expanding the food basket for children, adolescent girls, and expectant mothers. Similarly,
under PDS there are no TSP commitments. It is necessary that TSP is used to expand the TSP
components to ensure food security.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 Chapter 8
Good Practices
Many improvements were effected in the wake of TSP and the field teams felt that is important
to record good practices. The teams found that at no level - Tribal Development Department,
administrative departments, or in any other office - there existed a system by which good
practices were documented and shared. Very few instances of good practices were recorded
during the first round of field visit. This was because the field teams visited only a few villages
and the good practices that prevailed in other areas could not be recorded. The matter came up
in a meeting with the Principal Secretary, Tribal Development Department and it was decided
to depute some students, who had graduated from TISS, in different ITDPs to capture evidence
of good practices. However, the programme did not materialize. The field teams recorded a few
good practices that are presented below.

Sampurna Bamboo Kendra, Lawada, Dharni

Sampurna Bamboo Kendra (SBK) was started in 1993 by Dr.Nirupama and Sunil Deshpande.
Melghat was notorious for malnutrition and the death rate was high. The main objective of
Sampurna Bamboo Kendra was to provide livelihood opportunities to tribal people with the
help of bamboo handicrafts.

The project is located at Lavada, Taluka Dharni is constantly making conscious efforts to
implement and run various programmes for tribal youth to generate sustainable employment.
There is a staff of 11 personnel and 100 handicraft artists are employed in the workshop. The
tribal people are encouraged to cultivate bamboo and make bamboo handicrafts in Melghat.
Under this initiative, bamboo plants are distributed for cultivation. The tribal youth are provided
training in making bamboo handicrafts as well as bamboo houses. The organization has
facilitated formation of 210 self-help groups till today. Loans have been made available to these
groups. They are also part of Pasasbag programme (Backyard gardens).

Since September 15, 2012, the organization

has been providing training to tribal people.
The financial aid for this programme has
been offered by the Forest Department. The
Project Office, Dharni has made provisions
for financial assistance to this organization
under a Nucleus Budget. Besides, they also
receive funds from NABARD. SBK has also
collaborated with DRDA for bamboo housing
Bamboo Products

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and the CEO had sanctioned bamboo infrastructure for houses, built under Indira Awaas Yojana.
However, it was never implemented as there were many issues and various stakeholders in
Indira Awaas Yojana were not happy with this proposal.

SBK has also tied up with TRIFED for buying

and selling their handicrafts. They also
participate in various exhibitions and have
started their independent handicraft outlets
at Chikhaldara and Amravati. A few of the
people who were trained at SBK are now
self-employed and run their own bamboo
handicraft ventures.
Bamboo House

Study Tour to ITDP, Dharni

The study tour of ITDP office is meant for the villagers. The objective was to help them to know
what the ITDP does, how it functions, the roles and responsibilities of the various officials, and
the procedures involved in applying for tribal welfare schemes. In one of the FGDs conducted in
Barughavan village in Dharni ITDP area, the participants informed the field team that they were
taken on a Study Tour to the ITDP, Dharni and the tour was arranged by an NGO named Eficore.

Eficore, with the co-operation of PO, ITDP, Dharni has arranged several ‘Knowhow Visits’ to
the ITDP Project Office. The objective of the tour was to make the tribal population aware of
the tribal welfare schemes, working of Project Office and procedures involved in applying
for benefits. Most of the villagers were not familiar with procedures. During their visits, the
participants were taken to every officer’s table and briefed about their roles and responsibilities
and also the procedures for applying. This has helped the villagers in learning about the tribal
welfare schemes, removing their negative opinion about the department and the officials and
building confidence in applying for welfare schemes. The villagers opined that this kind of study
tour to ITDPs and Administrative departments, especially the BDO office, would be helpful to
them in applying for these schemes with ease and confidence. This also reduces the people’s
dependence on agents for applying for benefits.

Beneficiary Card, ITDP, Chandrapur

The Beneficiary card is one innovative initiative of Chimur Integrated Tribal Development
Project. The main objective of the card is to avoid duplication of benefits to the same household
offered by different departments. It helped a large number of households to receive different
benefits without duplication. Whatever benefits are extended to the household by various
government departments are recorded in this card. The working of this card could not be

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

100

assessed by the field team as it was introduced

recently. If the households maintain the card
properly and government agencies cooperate
by making entries of whatever benefits they
have provided to the family, the scheme will
be a success. However, a caveat needs to be
introduced here: to avoid duplication of
beneficiaries and to ensure transparency there
is no substitute for proper use of information
technology and mobilisation of strong
social audit measures. The Beneficiary Card
system must, at best, be seen as a stop-gap
arrangement between manual verification
and digitization.
Beneficiary Card

Individual Farming, Chandrapur

Mr. Suresh Gawade is a farmer from Thergaon village of Chandrapur District. He benefited from
the Tribal Development Department and Panchayat Samiti and that has positively impacted his
economic situation. He constructed a well with assistance from the Panchayat Samiti. He also
got a diesel pump in 2008 from ITDP. The diesel pump has positively impacted his economic
condition. He now cultivates
fruits, vegetables and rice.
Earlier, he could grow only
one crop; now he has multiple
crops. He sells the vegetables
in the nearby market. The ITDP
of Chandrapur is proud of this
farmer because he used the
benefits in a proper manner
and set an ideal example for
other people in that area.
Well and Oil Engine

Group Farming, Thane district

Mr. Kashinath Gavit and Mr. Ram Gavit are brothers belonging to the Konkana Tribe. The brothers
said that they used to work as labourers mining sand at Bhivandi. In 1997, BAIF introduced Vadi
Vikas Project. Twenty farmers participated in the training workshop including the two brothers.
As part of the workshop, they visited a farm at Pimpalshet. In the village open grazing is a

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 101

common practice and therefore crops

could not survive. After the training
workshop, three of the farmers
took up horticulture and cultivated
mangoes. By 1998, seven more
farmers from their village joined in
the group farming either horticulture
or floriculture. By 2000, there were 47
group-vadis (Farms). Today, most of
the farmers grow mangoes, cashew
nuts, guavas, pineapples and jasmine.

In the initial years, they faced the

problem of rodents. BAIF suggested

Mango Plantation
that they fence their farms. They
received diesel pumps under
TSP schemes. In 2005, they also
conducted a workshop on mango saplings. The farmers made saplings and sold them. Recently
they started cultivating bananas, egg-plants, bitter gourd and tomatoes. Earlier, the farmers had
to arrange transport of vegetables to the market, but now they bid on the phone or transport
their produce in their vehicle to the city market. The two brothers said that with their success
in farming has brought them prosperity; they have also bought more land, motorcycles and a
tractor.

Besides this, BAIF also provided them 100 jasmine saplings. For marketing jasmine flowers, the
village farmers are registered at Jagruti Farming Cooperative at Vada Office. Presently, there are
22-25 farmers in the village who are involved in group cultivation of jasmine. A daily record of
every farmer and a count of jasmine buds
are maintained at each collection centre.
There are seven different collection
centres in Jawhar. Approximately 900kg
of jasmine flowers are collected every
day. These flowers are sent to the Dadar
flower market. Marigolds and pink roses
are also cultivated.

The two brothers deliver lectures and

seminars on their farming experiences.
They are happy that “Our lectures Jasmine Plantation

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are appreciated by officials, because we speak from first hand experiences. After the session
participants do ask lot of questions”.

Individual Efforts, Jawhar

Mr. Desai is APO, ITDP, Jawhar. He was concerned with the high levels of malnutrition in his area
and decided that he would focus on this issue.

Mr Desai adopted two villages and is involved in their overall development.

Under the guidance of the Additional Collector, he Mr Desai took up a project two years ago.
BDO, ADO, PWD, Collector, ICDS in charge, Forest Controller and APO of Jawhar are the members
of the Government Officers’ Club. The Club adopted one family and provided them saris, spray
pump, solar lights, stationery, books, arranged health check-ups, met their specific needs. His
efforts were published in a newspaper. The initiative was extended one pocket. Many Sarpanchs
have since contacted Mr. Desai with a request for similar initiatives in their Panchayat villages.

Gram Panchayat Hatheri: In the Hatheri Gram Panchayat a ‘Tanta mukti committee’ has been
formed. The Tanta mukti committee works towards prohibition of alcohol and Hatheri Gram
Panchayat has been declared Tanta Mukt Gram.

Mr. Shekhar Sawant (BDO): Mr. Sawant and his acquaintances collected Rs. 27,000 and donated
the amount to BAIF for providing 226 solar lamps to students of standards 7 to 12 at a price of
Rs. 120/- per solar lamp. The lamps will be supplied very soon with the help of IIT, Mumbai. In
villages not being served by the power grid, the solar lamp will be a boon for the students.

Agriculture Block Level Officer, Mr. Dhumada: He took the lead in coordinating with Sijenta
beneficiaries. Sijenta is an NGO that provides technical support for servicing and maintaining
diesel pumps and also provides a unit for trainees to practice on for a few days. After a month,
the organization takes back the pump. Mr. Dhumada contacted the candidates and encouraged
them to apply for the TSP diesel pump scheme. He also prepared a list of beneficiaries and
gave it to the Gram Sewak. He also wrote to the individuals. This has helped to prevent the
enrolment of false beneficiaries and saved villagers the cost of vehicle and transportation to
take the benefit.

Tribal Sub-Plan in Maharashtra: A Diagnostic Study

 Chapter 9
Conclusion
The developmental gap between the STs and non-STs is not only large, it also has been widening
over the years. While the TSP strategy was supposed to address this situation, it has been only
partially successful. The TSP strategy of Maharashtra, which is markedly different from most
states has the advantage of being owned and guided by the TDD. However, the lack of depth
and diversity of schemes, and the lack of linkage to the outcomes to be achieved, leads to poor
results. The TSP is beset by poor expenditure percentages, lack of flexibility in planning, and
the denial of ownership of the plan to the people. Despite the mandate of PESA, the TSP does
not incorporate its provisions. The TSP also does not adequately provision for rights-based
interventions, and for livelihood. The schemes also do not ensure that adequate strategies are
formulated through the Plans to combat malnutrition, and ensure superior health outcomes.

The service delivery structure of TSP, i.e., the ITDP, is characterised by lack of human resources,
and poor monitoring structures. The TDD has not been able to decentralise administrative and
financial powers to its far flung various units. Despite, the absence of a technical, implementing
structure, and despite manpower constraints, the Tribal Development schemes are often chosen
to be carried out by the department itself. However, the report suggests that it is possible to carry
out the same through the Panchayati Raj Institutions wherein both reach and accountability,
through public representatives, are inbuilt in its structure. The Report recommends that powers
need to be delegated at each level. Beneficiary selection is one of the weak links of the system,
and often can be arbitrary or non-transparent. There is need to involve the Gram Sabhas in
selection, as also to use IT tools to ensure that duplication, or corruption , do not occur. The role
of Collector in coordinating between departments and in giving leadership to TDD schemes has
also been brought to the fore in this report.

We have given a number of recommendations in the Summary and Recommendations part of

the report as also across the breadth of the Report which derives largely from the principles of
people’s participation and subsidiarity. The report recommends building on the rights-based
approach, and in trusting local communities to effectively govern themselves. Devolution,
decentralisation, and effective social audit are the pillars of such interventions. The damage to the
delivery mechanisms of the tribal development department through excessive centralisation,
and the distance of the planner from those he plans for, are very evident. We are optimistic that
the report will contribute in converting the TSP into a more people-centric, responsive, and
efficient tool of tribal welfare.

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www.mahades.maharashtra.gov.in
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Tribal Sub-Plan in Maharashtra: A Diagnostic Study

Tribal Sub-Plan in Maharashtra
A Diagnostic Study

TATA INSTITUTE OF SOCIAL SCIENCES, Mumbai

Supported by

unite for children

UNICEF, Maharashtra
December 2015