CONTENTS

The Planning commission has identified 150 most backward districts of the country on the basis of prevalence of poverty indicated by SC/ST population, agricultural productivity per worker and agricultural wage rate. Most of them happen to be tribal districts. There is a need for substantial additional investment in these districts to convert their surplus labour into required capital formation solving livelihood issues.

The new Food for Work Programme is such an attempt. Substantial resources in the form of cash and foodgrains are being provided under the programme to generate additional supplementary wage employment and to create productive assets in these 150 identified districts. Through the programme, an attempt will be made to coordinate among different on going schemes which have wage employment potential, so that the focused approach provides a solid base for the districts to take off on their own. The success of the programme will depend on the vision with which it is implemented.

The new Food for Work Programme is also a move towards wage employment guarantee. It is an experiment, which if successfully carried out, will give the government the necessary confidence to take responsibility for providing wage employment guarantee, initially in these 150 identified districts and later, gradually in the remaining districts of the country.

CHAPTER – I

BROAD OUTLINE AND OBJECTIVES

1.1 OBJECTIVE

To provide additional resources apart from the resources available under the Sampoorna Grameen Rozgar Yojana (SGRY) to 150 most backward districts of the country so that generation of supplementary wage employment and providing of food-security through creation of need based economic, social and community assets in these districts is further intensified.

1.2 TARGET GROUP

The NFFWP will be open to all rural poor who are in need of wage employment and desire to do manual and unskilled work. The programme will be self-targeting in nature.

1.3 DISTRICTS WHERE THE PROGRAMME WILL BE IMPLEMENTED

The programme will be initially implemented in 150 most backward districts of the country as identified by the Planning Commission in consultation with the Ministry of Rural Development. The list of 150 districts is given in ANNEXURE- I. 1. 4 FUNDING PATTERN

The programme will be implemented as a 100% Centrally Sponsored Scheme. Foodgrains will also be provided to the States free of cost. The transportation cost, handling charges, and taxes on foodgrains will, however, be the responsibility of the States.

1.5 PROGRAMME STRATEGY

i) Collector will be the Nodal Officer at the district level and overall responsibility of planning, implementation, coordination, monitoring and supervision will be that of the Collector of the District. The necessary assistance will be provided to the Collector from the DRDA/District Panchayat (DP) to whom funds and foodgrains will be released.

ii) The focus of the programme will be on works relating to water conservation, drought proofing (including afforestation/tree plantation) and land development. Flood-control/protection( incuding drainage in waterlogged areas), rural connectivity in terms of all-weather roads and any other similar activity for economic sustainability, keeping in view the area specific problems, can be included provided the principal focus of the programme on water conservation and drought proofing is maintained.

iii) A five-year Perspective Plan for the district and shelf of works, Block-wise and Gram Panchayat-wise, will be prepared under the programme.

iv) Works which can be undertaken within the resources available under any other ongoing Central Scheme or any State Government Scheme falling within the Perspective Plan will be taken up under the respective schemes.

CHAPTER – III

WAGES UNDER NFFWP

3. WAGES UNDER THE PROGRAMME

1. The wages under the NFFWP shall normally be paid partly in foodgrains and partly in cash.
2. The wages to be paid under the NFFWP both for skilled and unskilled labour shall not be less than the minimum wages fixed by the State Government under the relevant Statute for agricultural labourers as applicable to the rural areas.
3. Equal wages shall be paid under the programme to both men and women workers.
4. Payment of wages shall be made on a fixed day in a week preferably a day before the local market day.
5. In case the executing Agencies do not pay the wages for a category of employment at the rate notified for the relevant schedule of employment under the relevant Statute, the District Panchayat/Intermediate Panchayat shall withhold further release of funds to that implementing agency and inform the fact to the concerned authority for suitable action against the erring official under the relevant Statute and also inform the Central Government.
6. Where the Central Government finds that the above provisions are not being followed, it may withhold further release of resources under the programme to the District concerned.

CHAPTER – IV

ALLOCATION AND RELEASE OF RESOURCES

1. The NFFWP will be allocation-based in terms of cash and foodgrains. The resources will be provided directly to the selected 150 backward Districts. The allocation of resources among the districts will be on the basis of percentage of each district in the total allocation of these districts under SGRY. The resources will be released in two instalments in a year.
2. Subject to the fulfillment of conditions given below, the cash and foodgrains component will be released every year to the District Rural Development Agency (DRDA)/District Panchayat (DP) as follows :-

 

3. Release of initial instalment (in 2004-05) and first instalment of cash component in subsequent years.

In the first year of the programme (2004-05), total allocation for the district under the scheme will be released. The amount so released will include the cost of preparation of the Perspective Plan, which may be upto Rs.10 lakh per district. The first instalment of the next year (2005-06) shall be released on receipt of the Perspective Plan and its approval by the Ministry of Rural Development and after utilisation of 60% of the available funds. The first instalment in the subsequent years (2006-07 onwards) will be released automatically to those districts which were released the second instalment in the previous year without any condition. The districts, which could not take the second instalment in the previous year, shall submit the proposal of the first instalment after fulfilling the conditions, which should have been met in previous year. The districts which received second instalment in the previous year conditionally shall submit their proposal for first instalment after fulfilling conditions imposed at the time of the release of second instalment in previous year.

4. Second instalment of cash component : The second instalment of Central assistance for the year 2005-06 and subsequent years will be released on request from the DP/DRDA in the prescribed proforma as per Annexure-II and on fulfillment of the following conditions:

1. 60% of the total available funds, that is opening balance of the year (in case of proposal for the first instalment, opening balance of the previous year) plus the amount received including the State share (if the State share has not been released against the first instalment, notional State share will be taken into account for the purpose of calculation of total availability) and other receipts during the year should have been utilized at the time of submitting the proposal for the second instalment.
2. The opening balance of the District i.e. the aggregate balances with the District Panchayat/DRDA and all implementing agencies should not exceed 15% of the funds available during the previous year (effective from 2006-07 onwards). In case, the opening balance exceeds this limit, the Central share of the excess will be deducted 100% at the time of release of the second instalment.
3. Submission of Audit Reports for the NFFWP for the last year and submission of Action Taken Report on the comments made in the audit report of the previous year. The Audit Report should contain a Certificate from the Chartered Accountant that while auditing the district account of the NFFWP, he has taken into account the Bank Reconciliation Statement and the accounts of all Implementing Agencies and that advances have not been treated as expenditure .
4. Submission of Utilization Certificates of cash component and foodgrains from Collector for the previous year should be submitted in the prescribed Proforma as per Annexures-III & IV

 

5. Submission of non-diversion and non-embezzlement certificate.
6. All pending progress/monitoring reports should have been sent.
7. Submission of a statement about the number of inspections conducted by officers at Block, Sub-Divisional, District, Divisional and State-level on the proforma as per Annexure-V.
8. Any other condition imposed from time to time will also have to be complied with.

1. For the sake of convenience, a checklist for the documents to be furnished along with the proposal is given in Annexure-VI.
2. Release of funds to the Implementing Agencies

4.7 Diversion of Resources

4.8 Carryover funds not to exceed 15%

4.9 Opening of Bank Accounts

4.10 Utilization of Interest Earned on Deposits

4.11 Drawal of funds4.11.1 Drawal of funds by the District Panchayats/DRDAs shall be as per the existing practice only after the approval of the Collector.

4.11.2 Withdrawal of funds for making payments towards the works undertaken by the Executing Agencies will be through a cheque and as per the departmental manual, in the absence of which Collector may decide.

Drawal of funds for any other purpose shall not be permitted. Anyone violating it will be liable for appropriate action.

12. Release of foodgrains under the NFFWP

4.12.1 Release of First instalment of foodgrains:

1. The release order for foodgrains will be valid upto the 30th June of the next financial year and in no case shall its validity be extended with the approval of the Ministry of Rural Development in exceptional cases beyond two financial years including the financial year in which it is issued.
2. The cash and foodgrain component will normally be released together. The Ministry may in exceptional cases allow them to be released separately if the utilisation of either of the components is not upto the required level for special reasons beyond control.
3. The first instalment of foodgrains will be equal to 75% of the total annual allocation of the district.
4. The foodgrains against a release order will be lifted only after the quantity authorized in the earlier orders has been fully lifted.

4.13 Cuts to be imposed on late receipt of proposals

4.14 Miscellaneous points

6. Maintenance of Assets created

CHAPTER – V

OPERATIONALISATION OF NFFWP

5.1 PERSPECTIVE PLAN

1. The Collector will get a Perspective Plan for 5 years prepared for the district basically based on four activities, namely, water conservation and drought proofing including afforestation; land development, flood control/ protection measures( including drainage in waterlogged areas) and rural connectivity with fair weather roads in the given order of priority. Experts may be engaged for the purpose.
2. For each activity as mentioned above, the works suitable and required for the area are to be identified in consultation with the Panchayati Raj Institutions concerned and local MP and MLAs. The works so identified may be arranged into shelves of works Block-wise and Gram Panchayat-wise. The shelf of works at the Gram Panchayat level will follow priority activity-wise as mentioned above and within the activity on the basis of local urgency and technical requirement.
3. For each work basic details including rough cost estimate should be given. Works which can be taken up under any other Central or State ongoing schemes like Sampoorna Grameen Rozgar Yojana (SGRY), Rastriya Sam Vikas Yojana (RSVY), etc. have to be indicated against the respective works. The remaining works, which can be completed in two years, will be done under the NFFWP.
4. Works earmarked for the NFFWP in the shelf of works may be taken up under the scheme in the order of priority indicated in the shelf of works depending on the resources availability under the scheme.
5. Every Perspective Plan will have an introduction of the district highlighting the special features and special problems of the district.
6. Resources under the programme cannot be utilised for land acquisition. Land belonging to small and marginal farmers and SC/ST farmers can not be acquired or donated for works under the programme.
7. Land development including plantation (horticulture & forestry), apart from Government land, works can be taken up on private land belonging to BPL farmers with priority to SC/ST farmers living below poverty line.
8. Road construction will be allowed only for linking unconnected villages and within the village unconnected habitation with priority to those villages/ habitations which have SC/ST concentration.
9. The State Government will forward the Perspective Plan to the Central Government with its recommendation along with an undertaking as to how the assets to be created under the scheme will be maintained.
10. The Ministry of Rural Development will examine the plan and convey its approval with or without modification.
11. After the Perspective Plan has been approved, the resources will be released based on the annual allocation.
12. The Ministry in consultation with the State Government may permit necessary amendments in the mode of execution, agencies for execution and maintenance, keeping in view the specific conditions prevailing in a State or a District provided the amendment is likely to result a substantial improvement of the scheme and achievement of the objectives.

1. The selection of agencies for preparation of Perspective Plan must be done very carefully. Only reputed organisations/institutions having expertise and competence to do such type of work should be considered and must process adequate human resources with necessary skills to carry out field surveys, interact with local people and Panchayati Raj Institutions, conceive and design low-cost projects, use of local resources and draw up workable plans.
2. The selection of agency will be by a Committee headed by the Collector. The other members can be decided by the State Government which will also prescribe parameters for shortlisting of agencies.
3. After the selection of the agency, the Collector will enter into an MoU with the agency specifying the details of work, time-schedule and payment schedule. At least, 25% of the payment shall be made only after the final approval of the Perspective Plan by the Ministry of Rural Development.

5.3 PAYMENT FOR PERSPECTIVE PLAN

1. The payment to the selected agency for Perspective Plan will be made in suitable instalments, the last-being after the approval of the Plan by the Central Government.
2. The payment schedule shall conform to the work schedule and payment shall follow the accomplishment of tasks assigned and make available the data, records and documents thereof.
3. The Perspective Plan shall be made available in the form of hard as well as electronic copies.
4. The amount to be paid shall be decided by the Selection Committee subject to any general guidelines as may be issued by State Government or Central Government.

5.4 EXECUTION OF WORKS

1. As and when and where it is required, works from the shelf of works of the Gram Panchayat concerned can be taken up.
2. The works can be got executed from line departments/ PRIs/ reputed NGOs/ Self-Help Groups/ other agencies of Central or State Government as may be decided by the Collector.
3. The Collector, before entrusting any work to any executing agency shall got an undertaking from the agency concerned to maintain separate account, make available records for audit and inspection, cooperate in inspection and follow the guidelines of the scheme. The agencies violating the undertaking should not be considered for further release of funds and the money already advanced shall be recovered if violations are of very serious nature like use of labour displacing machines, cost escalations beyond specified limits, diversion of funds, etc.

5. ADMINISTRATIVE AND TECHNICAL SANCTION

Necessary sanction may be accorded as per existing instructions of the State Government.

 

6. CONTINGENCIES

Upto 1% of funds can be used for contingencies and will include monitoring and training expenses. Complete record should be maintained and reported to the Ministry of Rural Development at the time of second instalment.

5.7 EMPLOYMENT REGISTER

5.7.1 Each Executing Agency shall maintain an Employment register, as given in Annexure-VII for the works being implemented within its jurisdiction under its own component which would contain the details of number of persons employed including the number of SCs/STs, gender of the workers and number of mandays generated for each work under the NFFWP. This information should be based on the Muster Rolls to be maintained work-wise. This register would be open to the public for scrutiny. Copies of this register shall be made available to public on demand, after charging a small fee if necessary. The State shall fix the fee. Display board should be put on the work site giving details of the work. Photographs of the works at various stages may also be kept.

5.7.2 The Collector may compile and consolidate information regarding generation of mandays and expenditure of works activity-wise at the block and the district levels for which, if need be, outsourcing of man power may be done by using funds for contingency earmarked under the programme.

CHAPTER – VI

MAINTENANCE OF ACCOUNTS AND AUDIT

1. DRDA or where DRDA has been merged with District Panchayat, the District Panchayat shall be responsible for maintenance of accounts and audit. The accounts shall be maintained separately by each executing agency also and presented for audit.
2. AUDIT OF WORKS

6.3 SOCIAL AUDIT AND VIGILANCE AT GRASS ROOT LEVEL

CHAPTER – VII

MONITORING AND EVALUATION

7.1 Monitoring

7.1.1 The Rural Development Department of the State Government and the Ministry of Rural Development at the Central level shall monitor the Programme through Monthly, Quarterly and Annual Progress Reports. In addition, the Monitoring and Vigilance Committees at the State and District levels shall also oversee the Programme as per the Guidelines issued by the Ministry of Rural Development.

7.1.2 Schedule For Inspection of Works

For effective implementation of the Programme, the State Government will ensure that the officers at the State, District, Sub-Divisional and Block levels closely monitor all aspects of the Programme through visits to work sites in the interior areas. A schedule of inspection, which prescribes the minimum number of field visits for each supervisory level functionary, shall be drawn up by the State Government and strictly adhered to. The schedule so drawn shall ensure that NFFWP works in at least 10% Panchayats are inspected by district-level officers and in 2% Panchayats by the State-level officers. A copy of the inspection schedule so drawn will be sent by the State Government to the Ministry of Rural Development for information. In addition, the State Government should advise the Divisional Commissioners, Collectors, Additional Collectors and Sub-Divisional officers to inspect some works during their field tours.

7.1.3 The officers dealing with Rural Development/NFFWP at the State headquarters shall visit Districts regularly and ascertain through field visits that the Programme is being implemented satisfactorily and that execution of works is in accordance with the prescribed procedures and specifications. The State Government will designate Area Officers for each district of the State and ensure that they undertake regular field visits to the area assigned to them.

7.1.4 During the course of inspection, if any official comes across any irregularity, he/she should immediately bring it to the notice of the Collector, District Panchayat and the Project Director, DRDA who would then take further appropriate action in the matter.

7.1.5. A summary of the number of inspections conducted by District and State-level officers shall be attached with the proposal for release of second instalment of cash component of Central assistance.(Proforma at Annexure-V)

7.2 REPORTS AND RETURNS

7.2.1 It shall be open to the Central Government to prescribe reporting formats for Monthly, Quarterly and Annual Reports. The State Government may, if it so desires, call for such additional information in such formats, as it may deem fit. The District Panchayats/DRDAs will also be accountable to the State Government to ensure that the returns/reports in respect of the works taken up for execution under the NFFWP in the Districts are furnished in time.

7.2.2 The following reports and returns will be submitted to the States by the District Panchayats/DRDAs:-

1. A Monthly Progress Report to be furnished in Proforma by the 10^th of every succeeding month as per Annexure-VIII. It will be the responsibility of Intermediate Panchayat to submit consolidated report in respect of Village Panchayats and Intermediate Panchayat of that Panchayat area, by 7th of every month.

 

2. A Quarterly Progress Report to be submitted by the Gram Panchayats and Intermediate Panchayats of that Panchayat area, by 7th of next month of the quarter ending.The Proforma to be used for this purpose is as per Annexure IX.

3. The State Government will consolidate these reports and returns received from the Districts and furnish the same to the Central Government, as follows:-

1. monthly report by 25th of every succeeding month.
2. quarterly report by 25th of the month following the quarter ending.
3. annual report by 26th April of the succeeding year.

7.2.4 The reports would enable the authorities both at the Centre and the State/UT level to monitor the progress of the programme and to keep a close watch on the wage employment generated and quality of infrastructure created. It will also help the Governments to take mid-course corrections.

7.2.5 The Central Government may develop a computerized information system for reporting under the NFFWP. All implementing agencies, District Panchayats/DRDAs shall follow the prescribed system.

3. DISTRICT LEVEL MONITORING BY CENTRAL GOVERNMENT

The Central Government will also appoint agencies for 100% verification of works and test check of quality and cost. Apart from District-level monitoring, National Level Monitors shall pay visit to inspect the works for which they will be assisted by the executing agencies.

4. MONITORING BY PANCHAYATS

The Panchayat concerned will have the right to inspect and review the progress of any work under the scheme in its jurisdiction.

8.1 Convergence/Dovetailing with other programmes

Funds available from other sources like market committees, co-operatives, NGOs, NRIs and other institutions could also be dovetailed with the NFFWP funds for works permissible under the later. The funds available with the PRIs from other sources such as National Finance Commission, State Finance Commission, State Departments, other Central and Centrally Sponsored Schemes such as Sampoorna Grameen Rozgar Yojana (SGRY), Swarnjayanti Gram Swarozgar Yojana (SGSY), Drought Prone Areas Programmes (DPAP)/Desert Development Programme (DDP), Rashtriya S am Vikas Yojana (RSVY) etc. can also be dovetailed for construction of durable community assets/works permissible under the NFFWP. However, NFFWP funds should not be used as a substitute for Departmental Plan funds of different Departments and agencies. Funds from other programmes for the works permissible under the NFFWP can be dovetailed with NFFWP funds and not vice versa.

8.2 If the Collectors are unable to utilize entire foodgrains with the cash component available under the NFFWP, the balance of foodgrains can be utilized by dovetailing the cash component from their State Sector Schemes. However, the mandays generated under such circumstances will be the part of NFFWP and the same should be reflected in their Annual and Monthly Progress Reports and Annual Action Plans should be prepared keeping in view the above factors.

ANNEXURES