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Forward

Pathey pioneered budget analysis work to advance the cause of

vulnerable and deprived section of society to ensure social justice and

development and to create a debate over the financial allocations for

the sections of society and its impacts over the society.

Pathey analysis is focused upon the issues of Adivasis (Schedule tribes),

Dalits (Schedule Castes), women, children, other backwards classes.

Pathey has also contributed in promotion of budget work in India and

other neighbouring countries by providing training and capacity building

skills for budget analysis.

The present study SCSP (Schedule Caste Special Plan) in Gujarat is an

attempt to know the budgetary allocation and expenditure under SCSP

by the state government in Gujarat for the development and welfare of

Schedule Caste communities. This report analyses the macro level budget

outlay and expenditure and major head wise (functional) as well. This

study is also an attempt to see the status of development indicators

pertaining to the schedule caste communities of Gujarat. The source of

data is from the various publications like budget publications of

government of Gujarat for five years, census data (2001 and 2011), NFHS(

National Family and Health Survey data 1 and 2), the literature produced

by studied conducted by some of organizations working with Dailt’s issues.

We hope the present study report will be very useful for the organizations

working for Dalit rights, Dalit rights activists, citizens, academician and

researchers, and policy makers and others, as this report gives information

about budget outlay and expenditure for the development and welfare

of the schedule caste communities in Gujarat.

I express thanks to Ms. Neeta Parghi and Ms. Urvashi Patel for initial data

entry of SCSP (Schedule Caste Special Component Plan) from budget book

of Social Justice and Empowerment Part II. I am also thankful to Ms.

Urvashi Patel for helping me in organizing the budget data and calculation

and preparing the graphs.

I am also thankful to Shri Sidhharaj S.Solanki, managing trustee of Pathey

trust and colleagues Lalsingh Parghi, Natwerbhai Vegda, and Ramanlal

Panchal and Pratab Solanki, for their moral support.

- Mahender

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Abbreviations

ANC Ante Natal Care

AE Actual expenditure

BE Budget Estimates

BFC Budget for Children

BCG Bacilli Calnette Guerin (BCG Vaccine)

CAG Comptroller and Audit General

CWC Child welfare Committee

CRC Child Right Convention

CHC Community Health Center

DISE District Information on School Education

DLH District Level Health

DPT Diphtheria Tetanus and Pertusis

DSD Director of Social Defense

EDI Education Development Index

FYP Five Year Plan

IMR Infant Mortality Rate

ICDS Integrated Child Development Scheme

GSDP Gross State Domestic Product

HDI Human Development Index

ME Modified Estimates

MOU Memorandum of Understanding

MDG Millennium Development Goal

MMR Maternal Mortality Rate

NGO Non Governmental Organization

NFHS National Family Health Survey

NSSO National Sample Survey Organization

OBC Other Backward Caste

PHC Primary Health Center

PNC Post Natal Care

RE Revised Estimates

SW Social Welfare

SCSP Schedule Caste Special Plan

SEBC Socially Educationally Backward Classes

TSP Tribal Sub Plan

TASP Tribal Area Sub Plan

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I n d e x

Forward

Abbreviations

1. Objectives, Methodology & Data base 4

2. An Overview of Schedule Castes in Gujarat

(Observations over Socio –economic status of SCs in Gujarat) 6

3. Schedule Caste Special Plan and Implementation (Concept of Schedule 14

Caste Sub Plan and Its Implementation status in Gujarat)

4. The priorities under SCSP in the present context 21

5. SCSP Patterns of Implementation (Major Head wise)

25

6. Recommendations: 41

7. Annexure-1

Major Head wise Actual expenditure 2010-11, Budget Estimates 2011-12, 42

Revised Estimates 2011-12 and Budget Estimates 2012-13

8. References 44

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1. Objectives, Methodology, & Database

Objective of the study

The objective of this study report is to ascertain the status of implementation of SCSP (Schedule Caste Special

Plan) in Gujarat and social and economic indicators of Schedule Caste people in Gujarat and make suggestions for

possible actions/steps for better implementation of SCSP for the development of SC communities and areas /

pockets, having population of schedule castes. This is further intended that the study report will create awareness

among the social activists and development practitioners to understand the budget allocation and utilization for

schedule caste people of the state. This study will serve great purpose for the policy makers and government’s

officials who are directly engaged in the implementation of SCSP.

Methodology:

The study is based upon secondary data published in budget books, performance reports, other various reports or

journals.

Time-frame

The study covers data from the year 2007-08 to 2011-12 RE (Revised Estimates) and 2012-13 BE (Budget estimates).

Data Base

The data based for this study have been derived from various sources like Government’s budget books (from

2007-08 to 2012-13), the performance report of department of Social Justice and Empowerment, various sample

survey of NSSO(National Sample Survey), NFHS(National Family and Health Survey), Census of India, and other

published materials from Government and Non-governmental organisations.

Data: Sources, Access & Analysis

As Gujarat state produces the separate budget statement under SCSP (Department of Social Justice and

Empowerment Part II Budget Publication No. 24(II), the budget estimates and expenditure have been selected

from the various years (2007-08 to 2012-13) of Publication No.24 (II).

Besides,

· Annual Financial Statements of the Government of Gujarat for various years (2007-08 to 2012-13).

· Budget at a Glance (2007-08 to 2012-13)

· Annual Plans of the Government of Gujarat(2007-08 to 2012-13)

· Socio-economic Survey Review of the Government of Gujarat for various years(2007-08 to 2012-13)

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· Development Programme various years (2007-08 to 2012-13)

· NFHS -3 Reports, 2005-06

· Census of India, 2001 & 2011

· Other budget related and performance reports of Government of Gujarat

· Various web sites of Government of Gujarat.

· Various reports of NSSOs

· Planning commission’s guideline

For reasons of consistency, financial data has been taken only from the Detailed Demand for Grants of the

Government of Gujarat, presented in the Legislative Assembly.

The increase or decrease in estimates and expenditure from one year to another year has been computed in order

to show the shift in emphasis of the State Government on particular sectors, schemes and programmes.

This study has not taken off-budget allocations and expenditures. This study has only taken financial data from

Detailed Demand and Grants from the mentioned departments presented in the Legislative Assembly.

Limitations of the Study

The study has taken some census data from 2001 and some from 2011, the census 2011 is yet to provide the exact

data of percentage of Dalits population in Gujarat.

The study is based on secondary data as available in the budget books and other related books; therefore, this

study just provides the trends.

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2. An Overview of Schedule Castes in Gujarat(Observations over Socio –economic status of

SCs in Gujarat)

Concept and practices of caste system:

The concepts of exclusion and discrimination are very closely associated with caste. By definition, exclusion is

known to be structured around the societal processes that exclude, discriminate, isolate, and deprive some

marginalized groups on the basis of certain social characteristics that are intrinsic to a social structure. In the

Indian context, marginalized social groups primarily, include the Scheduled Castes (SCs), the Scheduled Tribes

(STs), the Other Backward Castes (OBCs), Within the Hindu social structure, the SCs have been historically

discriminated on the basis of untouchability and caste-based discrimination.

Within the Hindu social structure, the SCs have been historically discriminated on the basis of untouchability and

caste-based discrimination. India’s caste system assigns individuals a certain hierarchical status according to Hindu

beliefs. As members of the lowest rank of Indian society, Schedule Castes face discrimination at almost every level:

from access to education and medical facilities to restrictions on where they can live and what jobs they can have.

More than 60 years after gaining Independence, India is still very much afflicted by the cancer of the caste system.

Schedule castes remain the most vulnerable and marginalized.

The origins of the caste system

The word Dalit—literally translating to “oppressed” or “broken”—is generally used to refer to people who were

once known as “untouchables”, those belonging to castes outside the fourfold Hindu Varna system. According to

the 2001 census, there are some 167 million Dalits (referred to in the census as “Scheduled Castes”) in India.

Schedule castes in Gujarat

Characteristics of Schedule Castes in Gujarat from Census 2001 lenses:

The total population of Gujarat as per 2001’s Census is reported 50,671,017, out of total population schedule

castes population is 3,592,715, constituting 7.1 per cent of the total population of the state. The state has registered

17.4 per cent decadal growth of SC population in 1991-2001. There are thirty (30) notified Scheduled Castes, and

all have been enumerated at 2001 Census.

If compared to states like Punjab, Himachal Pradesh or West Bengal where Dalits constitute more than 20 per cent

of the population, Gujarat counts a fairly low proportion of Dalits. According to the 2001 Census, there are

approximately 3.6 million members of Scheduled Castes in Gujarat, which represents 7.1% of the state’s total

population. This relatively low figure is, however, inversely indicative of their miserable condition. More than 80

per cent of the Dalits in Gujarat are daily labourers, the majority of which are in the agricultural sector. Half of the

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SC population is landless or owns less than one acre of land, which forces them to work on dominant castes’ land

in order to survive.

According to Human Development Report 2011, the population of Schedule caste people is around 9%. Though

census took place in 2011, citizens are yet to get census’ caste based population data, despite the information

technology.

The caste and un-touchability-based exclusion of the SCs has been conceptualized as unfettering multiple exclusions

on them. It has more or less, been accepted that the institutionalized nature of the caste system hinders the

progress of the SCs, and is reflected in the incidences of severe economic disparities and poverty among them.

Population: Size & Distribution

Among the districts, Kachchh (11.7%), Surendranagar (11%), Banas Kantha (10.8%), and Ahmadabad (10.7%) have

higher percentage of SC population to their respective total population. As regards percentage distribution of the

total SC population, Ahmadabad has reported the highest (17.3%), followed by Banas Kantha (7.6%), Rajkot (6.8%),

Junagadh (6.6%), Vadodara (5.7%), and Kachchh (5.2%) districts. Other districts account for one per cent or less

proportion.

Gujarat is one of the few states having high urban concentration of SC population. In 2001 Census, 39.3 per cent

of the total SC population has been registered in urban areas.

The Sex Ratio:

The sex ratio of total SC population in the state is 925, which is below national average (936) for all SCs.

Literacy Level

According to 2001 Census 70.5 per cent of the SCs population is literate in Gujarat. This is higher than the aggregated

national figure for SCs (54.7%). The gender gap in literacy among SCs is conspicuous with male and female literacy

of 82.6 and 57.6 per cent respectively.

Category of Workers

Of the total main workers among SCs, 32.1 per cent have been recorded as agricultural laborers and only 10.8 per

cent as cultivators.

Work Participation Rate (WPR):

The percentage of SC workers to total population (WPR) is 39.6 per cent, which is slightly lower than the aggregated

figure for all SCs at national level (40.4%). Of the total workers 79.7 per cent have been recorded as main workers

and 20.3 per cent as marginal workers. The female WPR is only 27 per cent, which is lower than their male

counterparts (51.3%). The overwhelming workers among males are main workers (91.6%).

Distribution of Total, Main and Marginal Workers among Schedule Castes:

Total workers Main workers Marginal workers

(% to Total Population) (% to Total workers) (% to Total Workers)

Total 1432917 1134872 289045

(-39.60%) (-79.70%) (-20.30%)

Male 958008 877336 80672

(-51.30%) (-91.60%) (-8.40%)

Female 465909 257536 208373

(-27.00%) (-55.30%) (-44.70%)

Source: Census, 2001

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An overview of Social and economic development indicators of the Schedule Castes in Gujarat:

The social and economic indicators of the development of Schedule Caste people are very important indicators to

present the level of development of schedule castes people vis a vis the other social groups. The indicators also

present the comparative picture of every social group at state and national level. The indicators form basis of

action plan for future development of the communities looking at the social and economic backwardness of the

social group.

The present study has taken social indicators of development of the schedule caste people in Gujarat, as published

by the census of India or government studies conducted by state and national level concerning to the schedule

castes people. Some of the indicators of development of Schedule castes are presented here.

Land Holding among the Schedule Castes People

According to Agricultural Census Reports, the land holders among the schedule caste people in Gujarat is reported

to be 1, 61,000 out of total 4,66,1000 land holders as reported in agricultural census 2005-06. The schedule caste

land holders are reported to be holding around 3,10000 hectares, thus the schedule caste percentage of landholders

is just 3.45%. This shows the high rate of landlessness among the schedule caste people in the state.

Social Group wise: Number and Area of Operational Holding pattern: (figure 000’)

Gujarat 2005-06 2000-01 % Variation

Number Area Number Area

All social Groups 4661 10269 4239 9877 9.95 3.97

Schedule castes 161 310 154 285 4.47 8.86

Schedule Tribes 488 969 439 911 11 6.33

% of SC land holders out of total. 3.45 3.02 3.63 2.89

% of ST land holders out of total. 10.47 9.44 10.36 9.22

Source: Agricultural Census, 2000-01 & 2005-06

If the data of agriculture census of 2005-06 are compared with agricultural census 2000-01, the data suggest that

there is increase of around 7000 (Seven Thousand) schedule caste people in land holder’s status. But still the

landlessness among them is higher.

Poverty among the Schedule castes people

According to Poverty data, the Below Poverty Line poor families among the schedule caste in the state are reported

to be around 21.8% in rural areas and 16% in urban areas respectively.

The poverty among schedule caste people in Gujarat

Gujarat state ST SC OBC OTHERS

Rural 34.7 21.8 19.1 4.8

Urban 21.4 16 22.9 7

Source: NSSO, 2004-05

As per the survey of BPL families conducted by the Rural Development Department there were 23.24

lakhs families in the state living Below Poverty Line (BPL) of which 2.37 lakh families (10.20%) belonged

to the Scheduled Caste. Ministry of Social Justice & Empowerment, Government of India has prescribed

an income limit of Rs. 15,976.00 p.a. for rural areas and Rs 21,206.00 p.a. for urban areas.Source: SCSP 2011-12, Social Justice and Empowerment Department, Gujarat

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Agricultural Labourers among the Schedule Caste in Gujarat

According to Census, 2001 report, the agricultural labourers among the schedule castes people is higher than the

other social groups. Around 49.17% schedule castes people were reported as agricultural labourers out of total

population of schedule castes, whereas, among the Schedule tribes, around 38.18% people were agricultural

labourers out of total ST population of the state.

SC ST Non SC/ST All

Gujarat 49.17 38.18 20.42 26.28

Source: Human Development and the status of the social Groups in Gujarat.

By: Sukhadeo Thorat and Motilal Mahamallik, working Paper Series: Volume I Number 06, 2006,

Indian Institute of Dalit Studies.

Drop Out among the Schedule Castes

As the education can bring real emancipation and social change, therefore, it’s important that every child get the

proper continuous and qualitative education. The state and society has great role to play in ensuring that every

child completes the school education, this is more important for vulnerable social groups like schedule tribes and

schedule castes people in any state, as there are constitutional provisions for reservation for higher education and

employment. The education can be a asset for the asset less (Landless) communities and the mere literacy and

school level education will not benefit the schedule castes people.

Dropout Rate in Higher Secondary Education (Standard 8-12)

General Schedule Caste Schedule Tribe

Sr. No Year Boys Girls Total Boys Girls Total Boys Girls Total

1 2 3 4 5 6 7 8 9 10 11

1 1995-96 29.44 25.49 27.92 28.51 28.73 28.59 22.49 20.4 21.72

2 2000-01 29.15 26.52 28.11 32.24 35.35 33.42 31.54 30.84 31.25

3 2001-02 24.74 21.13 23.32 29.08 34.88 31.33 24.43 21.41 23.2

4 2002-03 22.36 17.71 20.51 29.98 31.9 30.71 11.42 12.16 11.73

5 2003-04 24.78 18.38 22.26 31.03 31.84 31.34 27.02 22.78 25.31

6 2004-05 23.23 21.08 22.37 29.86 28.39 29.31 33.99 29.04 32

7 2005-06 24.53 25.77 25.03 28.36 26.71 27.74 17.8 12.98 15.83

8 2006-07 27.54 23.71 26.2 38.06 37.79 37.96 19.03 14.11 17

9 2007-08 29.6 24.86 27.74 38.29 35.5 37.28 27.33 22.45 25.31

10 2008-09 27.51 26.09 26.96 33.65 28.35 31.65 28.2 24.73 26.7

Source: Statistical Abstract of Gujarat 2010, Director of Economics

The dropout rate at higher secondary level (8-12) is observed higher among the Dalit communities than the General

category. Another striking observation is that the dropout rate is increasing more among Dalit communities than

the General category communities. The drop out among General communities was 27.92 in 1995-96, and 26.96 in

2008-09 respectively; the drop out rate among Schedule caste is observed 28.51 in 1995-96 and 31.65 in 2008-09

respectively. The dropout rate has declined at secondary education among the general category communities.

Whereas in the same time period the dropout rate among Dalit has increased. The dropout rate among the Dalits

is higher than the Adivasis and General category communities in Gujarat during the mentioned period.

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Access to Drinking water facility in Schedule castes households in Gujarat

Access to the safe drinking water is basic human right of every citizen. As the safe drinking water determines the

level of healthy life of the citizens, according to House Holds amenities report of The Census 2011, the total

numbers of schedule castes households have been reported 995408. The access to tape water from treated sources

is 463550 (46.57%) households. Around 33.46% households have access to untreated tape water, whereas 1.45%

households have access to drinking water from covered well and 2.26% households have access to uncovered

well. Around 6.90% households depend upon on hand pumps for drinking water and 6.25% households depend

upon tube well and bore well and 2.53% household depends upon other sources for drinking water. The percentage

of households depending upon untreated water is around 53.43%, which is quite substantial. The schedule caste

households should be provided safe drinking treated water, this will ensure better health level, thereby high

productivity and low expenses for medicines.

Total % within the % Near the % Away from %

Households premises premises premises

Total number of House holds 995408 682356 209903 103149

Tape water from Treated source 463550 46.57 396759 58.15 52913 25.21 13878 13.45

tape water from un-Treated source 333104 33.46 232168 34.02 78730 37.51 22206 21.53

Covered well 14395 1.45 2603 0.38 5246 2.50 6545 6.35

Uncovered well 22474 2.26 1973 0.29 8389 4.00 12112 11.74

Hand pump 68712 6.90 12643 1.85 37295 17.77 18774 18.20

Tube well/bore well 62253 6.25 36210 5.31 16111 7.68 9932 9.63

Spring 267 0.03 0 0.00 205 0.10 62 0.06

River/Canal 2612 0.26 0 0.00 1027 0.49 1585 1.54

Tank/Pond/lake 2819 0.28 0 0.00 778 0.37 2041 1.98

other sources 25222 2.53 0 0.00 9209 4.39 16013 15.52

Total number of House holds 995408 100.00 682356 100.00 209903 100.00 103148 100.00

Source: HH-6 SC: Schedule Castes Households by main source of Drinking water and location, Census. 2011

Schedule Caste Households having Latrines facilities

The schedule caste households having latrines facility in their premises is reported to be 5, 68,397 (57.10), whereas

4, 27,011 schedule caste households are reported not having latrines at their premises, which is around 42.89%; In

the urban areas, around 74.04% households have latrines in their premises, where as in rural areas, 25.96%

households are having latrines facilities in their premises. 80.43% schedule castes households not having latrines

in their premises are from rural areas and around 19.57% schedule caste households in urban areas do not have

latrines in their premises. The urban households not having latrines in their premises have access to public sanitation

services. The state government and local body authorities should work out some innovative programmes for

providing the sanitation facilities at their doorstep for better health and hygiene to the households not having

latrine facility in their premises, as this is directly related with social and human development of the people. The

special care should be taken in rural areas for providing the sanitation facilities.

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Schedule Caste Households having Latrines facilities

Total number of No. of households No. of households

Schedule Caste having latrines not having latrines

House holds facilities within facility within

the premises the premises

Total number of Schedule Caste House holds 9,95,408 5,68,397 427011

Total No of SC Households in Rural areas 4,91,031 1,47,570 343461

% of SC Rural Households 49.33 25.96 80.43

Total No of SC households in Urban areas 5,04,377 4,20,827 83550

% of SC Households in urban areas 50.67 74.04 19.57

Source: HH-8 SC: Schedule Caste Households by availability of latrine facility, Census. 2011

Schedule Caste Households by ownership status of the census houses sizes of the households and

number of dwelling rooms

Out of 9, 95,408 households of schedule caste people in Gujarat, around 2.62% (26099) families do not have

exclusive room in their dwelling unit, 47.05% (4, 68,324) families have one room dwelling, 37.04 %(3,68,701)

families have two rooms dwelling, whereas 9.62% (95,729) families have three rooms dwelling, 2.54 %( 25,286)

families have four rooms in their dwelling. The percentage of families having five rooms in their dwelling is 0.61%

(6056) and families having six rooms and above in their dwelling is just 0.52% (5,213).

The number of rooms in the dwelling units shows the level of economic status of schedule caste families in Gujarat

state. As per the present census 2011 data, around 50% families are having one room or no room in their dwelling

unit. 13.29% families are having more than three rooms in their dwelling unit.

Schedule Caste Households by ownership status of the census houses sizes of

the households and number of dwelling rooms

House Total no of No exclusive One Two Three Four Five sixrooms

hold size household rooms room rooms rooms rooms rooms and above

9,95,408 26,099 4,68,324 3,68,701 95,729 25,286 6,056 5,213

% of 100.00 2.62 47.05 37.04 9.62 2.54 0.61 0.52

households

1 37,305 1,875 23,905 9,264 1,789 316 67 89

2 82,377 2,901 48,259 24,052 5,468 1,147 293 257

3 1,12,324 3,375 59,546 36,856 9,578 2,090 448 431

4 2,14,925 5,411 1,02,871 78,180 21,194 5,216 1,237 816

5 2,14,078 5,171 1,00,640 81,959 19,584 4,636 1,192 896

(6-8) 2,82,406 6,388 1,17,969 1,17,298 29,145 8,158 1,827 1,621

9+ 51,993 978 15,134 21,092 8,971 3,723 992 1,103

Source: HH-4 SC: Schedule Caste House Holds by ownership status of the census houses sizes of the households and number of dwelling rooms.

Electricity in the Schedule Caste households in Gujarat

Schedule caste households having electricity in their dwelling in Gujarat by source of lighting.

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Main source of lighting

Total number Electricity Kerosene Solar energy Other oil Any other Nolighting

of households

Total 9,95,408 9,20,792 60,225 833 1,860 2,110 9,588

% of 100 92.50 6.05 0.08 0.19 0.21 0.96

households

having lighting

Rural 4,91,031 4,33,292 48,083 605 1,292 1,456 6,303

Urban 5,04,377 4,87,500 12,142 228 568 654 3,285

Source: HH-7 SC: Schedule caste Households by Main Source of Lighting, Census, 2011

As per the present census report on household for schedule caste people for Gujarat, out of total 9,95,408

households around 92.50% households have lighting facility by electricity, where as 60,225 (6.05) families have

light facility by kerosene and 1860 households (0.19%) households have light by other oil.

Nutrition Level among the schedule Castes

Status of Nutrition among schedule caste population

Background Anemia status by hemoglobin level Any anemia Number of

Characteristic Mild Moderate Severe (<11.0 g/dl) children

(10.0-10.9 g/dl) (7.0-9.9 g/dl) (<7.0 g/dl)

Cast/Tribe

SC 23.8 40 4.8 68.5 210

ST 21.7 58.9 2.3 82.9 128

OBC 24 43.6 4 71.5 529

Other 28.2 32.5 2.8 63.5 388

Source: NFHS-3(National Family and Health Survey)

The nutritional level among schedule castes children is observed, which reflects the poor economic status of

family and less access to nutritional food. As per the NFHS-3 Report, it is observed that 68.5% children suffered the

malnutrition, whereas malnutrition among others’ children is 63.5%. The malnourished children’s percentage is

more among the children, as state of malnourishment determines the children’s future growth physically as well

as mentally, therefore, the state government should allocate more budgetary outlay for addressing the

malnourishment of children and the schedule caste children should be given more focused attention in eradicating

malnourishment so that the SC children also enjoy childhood and grow for actualization of their future aspirations.

Infant Mortality Rate among Schedule Castes communities

Infant Mortality Rate among SCs in Gujarat

1998 2005-06

SC 80.1 65.4

OTHERS 53.7 47.3

UNDER 5

Mortality

SC 123 86.6

OTHERS 70.3 55.7

Source: NFHS3.

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As per the NFHS-3 report the infant mortality rate among the schedule caste people is higher than the others, the

infant mortality rate among SCs was 80.1/one lakh live birth in year 1998, whereas the same was 53.7 for others.

The infant mortality rate has declined to 65.4 in year 2005-06 and the same is 47.3 for the others. The IMR has

certainly declined but among the schedule castes people, it is observed that the IMR is higher than the general

caste people, which may be due to the uneven health care services access to the schedule castes people. Even

mortality under five among the schedule castes community members is also observed higher compared to the

others. The state government needs to provide higher allocation of budget under family welfare to provide better

services to the schedule caste people. There should be targeted focused programmes for nutritional and health

care services for SCs under the Schedule Caste Sub Plan

.

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3. Schedule Caste Special Plan and

Implementation(Concept of Schedule Caste Sub Plan and ItsImplementation status in Gujarat)

The framers of the constitution took note of the fact that certain communities in the countries were suffering

from extreme social, educational, and economic backwardness arising due to age old practice of, who need special

safeguard of their interests and for their accelerated socio economic development .these communities were

identified as per the provisions contained in clause 1 of articles 342 of the constitution.

The Constitutional Provisions for Protection and Development of Schedule Castes

The provisions and safeguards for backward classes and especially for SCs and STs have been incorporated in the

constitution of India. The safeguards in the field of social, economic, political, cultural and services under the state

for the people belonging to these communities for their development, Who constitute Schedule Caste and are

contained under article 366(24) and 341 of the constitution.

Evolution of SCSP (Schedule Caste Sub Plan)

In spite of the Constitutional safeguards and developmental planning launched since 1951, through the First Five

Year Plan (1951-56) the Schedule Castes lagged behind the general population in various socio-economic indicators.

The Sixth Plan identified the lack of economic support as the main cause of extremely slow pace of development

of the Scheduled Castes during the earlier plans, though it was inherent in the earlier five year plans that the

benefits of economic development resulting from the investments in agriculture and industry in particular would,

in course of time trickle down to the poorest of the poor, the search of a new strategy during the Sixth Five Year

Plan. The new strategy so evolved is a combination of the following three instruments: (1) The Special Component

Plan of the States and Central Ministries (SCP), (ii) The Special Central Assistance, (iii) The Scheduled Castes

Development Corporations in the States (SCDCs). The Sixth Plan (1980-85) marked a shift in the approach to the

development of SCs. Special emphasis was laid on the implementation of the newly launched SCSP for SCs facilitating

easy convergence and pooling of resources from all the other developmental sectors in proportion to the population

of SCs and monitoring of various developmental programmes for the benefit of SCs. The strategy of Scheduled

Caste Sub Plan (SCSP) (earlier known as Special Component Plan for Scheduled Castes) is in force since 1979-80, to

ensure proportionate flow of plan resources for the development of Scheduled Castes. The current name, i.e.

Scheduled Caste Sub Plan (SCSP) is in force since 2006. The Prime Minister, in his address to the 51st Meeting of

the National Development Council on 27.6.2005, had inter alia, stated as follows:

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“If the benefits of growth have to reach all sections of our diverse society, there is a need to equip them with the

necessary skills and resources to become active participants in growth processes. This is the only way of achieving

our dream of an inclusive, prosperous society. In the mid-1970s, the Special Component Plan and the Tribal Sub-

Plan were initiated. Tribal Sub- Plans and Special Component Plans should be an integral part of Annual Plans

as well as Five Year Plans, making provisions therein non-divertible and non-lapsable, with the clear objective

of bridging the gap in socio-economic development of the SCs and STs within a period of 10 years”

Objectives of SCP (Schedule Caste Sub Plan)

1. Ensuring the share of resources spent for the benefits of the SCs and STs is at least in proportion

to their population of state/country.

2. The SCP should ensure reduction in poverty and un-employment among the schedule castes

and tribes people.

3. The SCP should also create productive assets to sustain the growth likely to occur through

development process.

4. Development of human resources though specifically providing adequate educational and health

care services.

5. Provision of physical and financial security against all types of exploitation and oppression.

Action plan for fulfillment the above objectives the following points may be taken into account while

formulating SCP

The Planning Commission has suggested the following Implementation guidelines for

SCSP

· Earmarking of funds under SCSP/TSP from the Central Ministry/Department plan outlay at least

in the proportion of SC and ST population to the total population of the state. Non–earmarking

of funds under SCSP and TSP may result in non-approval of plans of the Central Ministries /

Departments

· The funds under SCSP should be Non-divertible.

· A dedicated unit may be constituted as nodal unit for formulation and implementation of SCSP.

· The nodal dedicated unit should be responsible for ensuring that the funds allocated to the

sectoral units in the department to implement schemes directly relevant to the schedule caste

community.

Placing the funds earmarked for SCP under separate budget head/sub-head for each department

for implementing SCSP. It may be noted that the list of Major and Minor Heads of account on

union and states as issued by the CAG provides that Special Component Plan (789) may be

opened as Minor head below the functional Major head/sub head major head wherever

necessary.

The principal theme of the SCSP is to allocate funds at least in the proportion of the SC population to

the state’s total population.

For example, SC population in Gujarat constitutes 7.09 per cent of the total population in the state and therefore

each department is required to allocate and spend 7.09 percent of its total plan size for the Schedule Caste people

through the SCP. Note that, according to the Census 2001, the total population of SC in Gujarat is 35.93 lakh. There

is a nodal department in each state which is responsible for coordinating the implementation of the SCP. In Gujarat,

the Department of Social Welfare and Empowerment is the nodal department, which is in charge of the

implementation of the schemes under the Special Component Plan for Schedule Castes people in Gujarat.

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Sr. No Schedule Castes population In Gujarat In India

1 Total Persons (Census 2001) 35.93 (lac) 1666.36 (lac)

2 % of SC Population to total population (Census 2001) 7.09% 16.20%

S o u r c e : C e n s u s , 2 0 0 1

Structure and Approach of Scheduled Caste Sub Plan in Gujarat

In order to make Scheduled Caste Sub Plan more effective and meaningful, State Government is determined to

allocate funds for it in actual proportion of Scheduled Caste population. Moreover, separate cells have been

established for evaluation of the Special Component Plan under the overall guidance and control of the Social

Justice & Empowerment Department.

Approach

In view of the observations of the previous Chapters, following approach has been adopted for the formulation of

Tenth Five Year Plan for Scheduled Castes.

1. Only those schemes, which ensure direct benefits to individual or families belonging to Scheduled Castes, are

taken under Scheduled Castes Sub Plan.

2. Outlay for area oriented schemes directly benefiting Scheduled Castes localities/villages having majority of

Scheduled Castes population has been reflected under the Scheduled Castes Sub Plan.

3. Wage Component under the schemes has not been included under the Scheduled Castes Sub Plan.

4. Priority has been given for providing basic minimum services like Primary Education, Health, Drinking Water,

Rural Housing, Rural Link Roads, Rural Electrification, Nutrition, Women and Child Development and capacity

to build self reliance of S.C.

5. Review of the on-going schemes has been done so that they are able to tackle the problems of Scheduled

Castes effectively and more self-reliant.

Objectives of Eleventh Five Year Plan (2007-12)

The population belonging to Scheduled Castes is far below the general standard of living and they have still to

touch level of development achieved by other sections of the population. In view of this, the overall objective of

Scheduled Castes Sub Plan is to enhance the present level of development and bring it at least on par with that of

general level of development in terms of various socio-economic parameters. However, the specific objectives for

the Eleventh Five Year

Plan is mentioned below;

1. Substantial reduction in poverty and unemployment;

2. Creation of productive assets in favour of Scheduled Castes to sustain the growth likely to accrue on account

of development efforts for state economy.

3. Diversification of the economy to have an optimal-mix of development by providing adequate opportunities

in all the sectors;

4. Human resource development by providing adequate educational and health service; and

5. Provision of physical and financial securities against exploitation.

Strategy during Eleventh Five Year Plan (2007-2012)

1. In order to achieve the above objectives, the foremost task is to ensure proper allocation of outlay under

Special Component Plan to different sectors of the economy.

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2. Some bench mark surveys will also be done to collect basic and primary data regarding above variables. For

this purpose, help of the institutions engaged in such activities will be sought.

3. Formulation of suitable guidelines for district and state sector schemes from time to time so that they may be

properly implemented to achieve the objectives.

i) The schemes under Scheduled Castes Sub Plan would be properly monitored and evaluated from time to time

so that feed back is made available for applying corrective measures for the schemes to make them more

fruitful and objective oriented.

ii) For diversification of the economy, the priority would be given to develop agriculture based allied activities

like animal husbandry, dairy, forestry, co-operation and farm mechanization. Attempt would also be made to

reduce the pressure on land by transferring at least 20 per cent of the labour force engaged in agriculture

sector to secondary and tertiary sectors.

The Financial Resource for the Scheduled Castes Sub Plan

The financial requirement of Scheduled Castes Sub Plan will be met as under:

1. Allocation from the State Plan Outlay (in proportion of Scheduled Castes population).

2. Special Central Assistance from the Government of India.

3. Central Assistance from Central Sector schemes and Centrally Sponsored Schemes.

Actual Implementation of Scheduled Castes Sub Plan in Gujarat

In most of the states in our country, the SCSP model has not been properly followed by the departments of the

state government, Gujarat is not exception, and even the central government has equally failed in implementing

the special component plan as per the guidelines of planning commission of India. The Gujarat Budget documents

have a separate budget statement, which shows the budget estimates and actual expenditures under SCSP, which

is good practice for promoting budget transparency for disadvantageous groups. The budget book publication

number 24 (Part II) provides budgetary information for SCSP. This publication shows budgetary information under

the code system of six tier format of major head wise to object head wise.

The statement is also provided in Development programme, which is exactly same in the budget publication). The

estimated state plan size for year 2012-13 is Rs. 50559 crore, where as the estimated plan outlay under SCSP is Rs.

2849.23 crore, thus the plan budget under SCSP out of state’s total plan is around 5.63%, where as the budget

estimate of Social Justice and Empowerment Department (SCSP-II) is Rs. 3108.60 crore (Plan and Non-plan), the

budget estimates under SCSP-II out of state’s total plan budget is 6.15%. As per the census 2001, the schedule

castes population in Gujarat is 7.09% and the census data of 2011 for schedule castes population is not available

yet, therefore, this study will stick to SC population of 2001.

The following is status of implementation of SCP in Gujarat in last six years and budget estimates of the current

year 2012-13.

(19)

Status of SCSP within state plan in context of guidelines.

(All figures in crores)

Year ** 2005-06 2006-07 2007-08 2008-09 2009-10 2010-11 2011-12 2012-13

-RE BE

Gujarat State 11000 14384 16000 21000 23161 30000 38000 50559

Plan outlay

Special Component 333.67 368.93 554.164 1053.13 1269.08 1337.68 1785.78 3108.60

Sub Plan’s (SCP)

expenditure

%SCP out of 3.03% 2.56% 3.46% 5.01% 5.47% 4.46% 4.7% 6.15%

state’s total plan

As per guideline 770 1006.91 1120 1470 1621.30 2100 2660 3541.93

SCP should be

Denial of budget 436.33 637.98 568.84 509.24 353.22 662.32 874.22 433.33

as per guidelines

**The shown figures have been taken from the budget books of various years of “Department of Social Justice and

Empowerment” Part-II from 2005-06 to 2012-13 and the plan budget of the state for the same period.

The budget outlay has been increasing every year under SCSP as the state plan size has also increased every year

with; As the state’s financial positions has been progressing well. The above table illustrates very well that the state

government has never made outlay for SCSP for the upliftment of the schedule caste people as per the proportion

of schedule caste population in the state, in each year, the outlay under SCSP. The expenditure under SCSP during

2005-06 to 2010-11 and revised estimates of year 2011-12 has not been as per the proportionate population of

schedule castes (7%) from the plan outlay. The expenditure under SCSP has remained 2.56% to 5.47% during the

said period. The budget estimates for year 2012-13 for SCSP is 6.15%, which is short by 0.75% from the total plan

outlay of the state, thus the state government has made less allocation of Rs.433.33 crore in the present year (2012-

13) as well. Thus the denial of financial resources under SCSP is quite substantial in each year.

In spite of the efforts of the State Govt. to provide for S.C.S.P. outlay in proportion to the SC population of

the State, it has not been possible to attain a percentage of 7.09 (being the percentage of SC population

of the State) of State Outlay for S.C.S.P.. It is largely due to the fact that the SC population of the State is

scattered throughout the State unlike the ST population which is almost fully concentrated in the eastern

belt. It makes it very difficult to take up the area based developmental projects exclusively for SCs. This

results in only individual based schemes to be taken up in SCSP. If we leave out the residual sector, the

percentage of SCSP outlay to total Plan outlay comes to substantially more than 7.09%. Still the efforts

are on to raise the SCSP outlay to the percentage of SC population of the state.

In addition the expenditure incurred in creating infrastructure facilities like big irrigation dam like Narmada

Dam, high ways, check dams, group water supply schemes, electrification programmes etc. from a big part

of the State Annual Plan. The benefits equally accrue to S.C. population from these infrastructure facilities.

However, it is no possible to pin point the exact amount of expenditure incurred only for S.C. population.

As regards the Special Central Assistance to Scheduled Castes Sub Plan, the performance has been

somewhat better.

Source: Page 11, Government of Gujarat, SCSP, 2011-12,

Social Justice and Empowerment Department, February, 2012

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Actual implementation of SCSP

Making Budget outlay under BE (Budget Estimates) is one part of estimated allocation but actually spending budget

outlay under the said functional heads (4 digit numbers knows as major heads) is another part. It is often observed

that estimated budget number change after eight month depending upon level of expenditure (also known as

revised estimates RE) and the actual expenditure is always reported which is not closer to the budget estimates.

This is mainly is concern of during the implementation, which is determined by priority and supply of budgeted

grants to the line departments.

The actual implementation of SCSP for promoting various social, economic developmental activities for the welfare

and upliftment of the schedule castes community of state is also marked by under utilization of budget outlay.

SCSP Gujarat: Actual utilization Vs Budget Estimates (All figures in crore).

Difference of % of utilization

actual expenditure under SCSP

Budget Revised Actual from budget against budget

Year Estimates Estimates Expenditure Estimates (BE-AE) Estimates

2007-08 478.8243 569.9215 554.164 75.3397 115.73

2008-09 1053.131 1070.105 960.9082 -92.222 91.24

2009-10* 1436.7 ME* 1376.176 1269.0859 -167.614 88.33

2010-11 1457.57 1389.168 1337.6824 -119.89 91.77

2011-12 2050.191 1857.78 -192.41 (BE-RE) 90.62

2012-13 3108.6017

Source: Budget books of 2007-08 to 2012-13 for Department of Social Justice and Empowerment part II (SCP).

*ME- State Government presented Modified Budget on account of the Parliament election in May, 2009.

The actual implementation of SCSP in Gujarat seems quite pathetic, whatever outlay has been made in each year

is not fully utilized, there is under spending in each year except in year 2007-08, when the budget estimate for

SCSP was Rs. 478.82 crore and the actual expenditure was Rs. 554.16 crore, as a result an amount of Rs. 75.33

crore was excess expenditure which in a way compensate the some amount of denial of budget. The under

spending of budget outlay under SCSP is also of substantial amount, which should have been fully utilized. The

figures of budget estimates and actual expenditure during each year are shown in the above table. The under

spending in 2088-09 was Rs. 92.22 crore, in year 2009-10 was Rs. 167.61 crore, in 2010-11 was Rs. 119.89 crore

and as per the revised estimates of 2011-12, the under spending during 2011-12 is estimated to be around Rs.192.41

Crore.

The overall picture could be summed up that (1). The budget outlay under SCSP (Schedule Caste Special Plan) is

not made as per percentage population proportion and (2). Whatever outlay is made, it is not fully utilized and

there is under spending under the SCSP and the under spending is around 10% against the budget outlay in each

year from 2008-09 to 2011-12, which in a way results into less financial resources for the upliftment of schedule

caste population. This is quite evident from previous Five Year Plans as well.

Status of SCSP in Gujarat during the five year plans (7th to 10th Five Year Plan)

The implementation of SCSP (in the context of budget outlay and utilization) has never been as it was envisaged to

address the socio-economic needs of SCs. During the 7th Five Year Plan, the total budget outlay was just 2.86%, 8th

(21)

Five Year Plan the outlay was 2.97%, 9th Five Year Plan 3.75%. It was during the 10th Five Year Plan only the outlay

percentage increased to 5.23% but during all five year plans, the Plan outlay was never up to 7%. The Expenditure

out of budget outlay for SCP was never 100% during the five year plans except 8th Five Year Plan. Expenditure out

of budget outlay for SCP was 89.79% during 7th Five Year Plan, 111.67% during 8th Five Year Plan, 80.84% during the

Ninth Five Year Plan and 82.69% during 10th Five Year Plan respectively.

Sr. No Plan period state plan SCSP % of5-3 % of6-5

(Figures in crore) (Figures in crore)

% Expenditure

out of

% Budget

outlay outlay

Outlay Expenditure Outlay Expenditure for SCSP for SCSP

1 2 3 4 5 6 7 8

1 Seventh Five 5589.37 NA 160.73 159.9 2.86 89.79

Year Plan (1985-90)

2 Eight Five 11500 11756.09 341.12 380.95 2.97 111.67

Year Plan(1992-97)

3 Ninth Five 28000 27072.56 1050.9 849.64 3.75 80.84

Year Plan(1997-2002)

4 Tenth Five 49415.55 44772.66 2464.11 2037.63 5.23 82.69

Year Plan(2002-07)

5 Eleventh Five Year Plan 128161 6476.42 5979.62 5.05 92.33

(BE) (2007-2012)

Source: page 10, SCSP 2011-12, Gujarat , Social Justice and Empowerment Department, February, 2012 Except 11th Five Year Plan

1. The planners of SCSP have not made budget outlay from the state’s plan budget as per the proportionate of SC

population.

2. The budget outlay under SCSP has never been fully utilized, the under utilization is observed during five year

plans except Eight five year plan (1992-97), when the utilization was 111.67% against the budget outlay.

(22)

The shift in Priority under SCSP and Budget Estimates and Expenditure:

The pattern of expenditure under SCP is changing during the last five years, during the 2007-08, social services

(Revenue and Capital) accounted 79.14% of total expenditure under SCP and economic services (Revenue and

capital) expenditure was 19.37%. The expenditure under social services has gradually declined (in percentage) from

79.14% (2007-08) to 52.24% as per the budget estimates of 2012-13. The expenditure under economic services has

increased gradually from 19.37% during 2007-08 to 47.36% as per the Budget estimate of the year 2012-13. The

capital account on social services has also witnessed decline from 6.60% (year 2010-11) to 3.64% (BE 2012-13).

The total expenditure under economic services was 32.17 in year 2010-11, which has declined to 17.49% as per the

budget estimates of 2012-13.

The expenditure for capital account on economic services was 1.35% only in 2010-11, which has been increased to

30.63% for year 2012-13. The increase of budget outlay has been suggested for capital outlay on major irrigation,

there was no budget outlay under major irrigation but in year 2012-13 budget estimates of Rs.713 crore has been

proposed, the revised estimates under major irrigation is Rs.88.75 crore against the budget estimates of Rs.220

crore.

Major Head Major Head 2010-11-AE 2011-12-BE 2011-12-RE 2011-12-RE

No. Rs. in crore Rs. in crore Rs. in crore Rs. in crore

Capital outlay on Major Irrigation 4700 0 220 88.75 713

4. The priorities under SCSP in the

present context

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If this pattern of outlay and expenditure continues in the subsequent years, it suggest the priority shift from social

services to economic services under SCSP for the development and welfare of schedule castes. In the beginning of

11th Five year Plan, the focus was on social development but gradually the focus is shifting towards economic

development, so that the issues of poverty and development of infrastructure in the pockets having concentration

of SC population is addressed through implementation of SCSP. The next five year plan implementation should

focus upon key priority for making efforts to bring the socially and economically substantial positive change to

reduce the overall gap between schedule castes and main stream society.

Under-spending and Over spending under Special Component Plan:

There are total 53 major heads, under which financial outlay is made for the welfare and development of schedule

caste people. During the year 2010-11, the financial under spending (expenditure against budget estimates) is

noticed under 30 major heads, means 56.60% major heads under spent the budget outlay during the year 2010-

11, over spending is observed under 6 major heads (11.32%) and under 8 major heads (15.09%) outlay was fully

utilized and there was Nil budget outlay under 9 major heads (16.98). See the following table annexure list of

major heads.

Under spending/Over spending / and fully utilization of Budget outlay under Major Heads of SCSP:

(All figures in crore)

Sr. Major_Heads Major_no 2010-11 2010-11 2010-11 under under

BE RE AE spending/ spending/

over over

spending / spending /

fully fully

utilization utilization

1 Administration of Justice 2014 0.80 0.6 0.11 0.69 1

2 Stationery and Printing 2058 0.04 0.04 0.01 0.03 2

3 General Education 2202 96.48 97.01 86.9 9.58 3

4 Technical Education 2203 11.85 5.91 1.9 9.95 4

5 Sports and Youth Services 2204 0.55 0.55 0.42 0.13 5

6 Art and Culture 2205 1.25 1.25 0.98 0.27 6

7 Medical and Public Health 2210 39.13 39.13 33.1 6.03 7

8 Family Welfare 2211 26 26 26 0

9 Water Supply and Sanitation 2215 52.5 52.5 52.5 0

10 Housing 2216 43.55 40.93 40.88 2.67 8

11 Urban Development 2217 138 138 138 0

12 Information and Publicity 2220 3.75 3.47 3.4 0.35 9

13 Welfare of SC/ST & OBC 2225 349.56 294.5 283.78 65.78 10

14 Labour and Employment 2230 13.7 14.62 13.5 0.2 11

15 Social Security and Welfare 2235 97.39 92.07 89.53 7.86 12

16 Nutrition 2236 15 15 14.99 0.01 13

17 Secretariat Social Services 2251 3.17 3.6 3.46 -0.29

18 Crop Husbandry 2401 41.28 41.28 39.27 2.01 14

19 Soil and Water Conservation 2402 11.71 11.76 11.76 -0.05

20 Animal Husbandry 2403 7.67 6.74 5.41 2.26 15

21 Dairy Development 2404 1.5 3.52 3.52 -2.02

22 Fisheries 2405 3.08 2.58 2.58 0.5 16

23 Food storage and warehouse 2408 0 0 0 0

24 Co–operation 2425 11.13 11.66 11.03 0.1 17

25 Special Programmes for 2501 33.67 27.72 26.27 7.4 18

Rural Development

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26 Rural Employment 2505 19.5 16.6 16.6 2.9 19

27 Other Rural Development 2515 32.27 56.42 56.42 -24.15

Programmes

28 Minor Irrigation 2702 30.08 30.08 30.03 0.05 20

29 Power 2801 5 2.5 2.5 2.5 21

30 Non–conventional 2810 0 0 0 0

Sources of Energy

31 Village and Small Industries 2851 39.8 35.36 26.6 13.2 22

32 Industries 2852 0.25 0.25 0.25 0

33 Roads and Bridges 3054 177 197 198.04 -21.04

34 Tourism 3452 0 0 0 0

35 Other General Economic 3475 0.06 0.05 0.05 0.01 23

Services

36 Capital outlay on Public Works 4059 2.56 0.64 1.2 1.36 24

37 Capital Outlay on Education 4202 14.21 14.21 14.21 0

Sport, Arts and Culture

38 Cap Outlay Medical and on 4210 68.34 68.34 68.34 0

Public Works

39 Capital outlay on family welfare 4211 0 0 0 0

40 Capital outlay on housing 4216 2.28 2.28 2.28 0

41 Capital outlay on urban develop 4217 0 0 0 0

42 Capital Outlay on welfare of 4225 19.21 4.63 3.46 15.75 25

SC/ST & OBC

43 Capital Outlay on Other 4250 1 0 0.06 0.94 26

Social Services

44 Capital Outlay on Forestry 4406 18 18 18.04 -0.04

and Wildlife

45 Capital outlay on other rural 4515 0 0 0 0

development work

46 Capl outlay on major irrigation 4700 0 0 0 0

47 Capital outlay on 4701 0 0 0 0

medium irrigation

48 Capital Outlay on 4702 10.5 0.01 0.01 10.49 27

Minor Irrigation

49 Capital Outlay on Village 4851 0.03 0.04 0.01 0.02 28

& Small Indus.

50 Capital Outlay on Roads 5054 2 0.02 0.01 1.99 29

and Bridges

51 Loans for Welfare of 6225 12.71 12.28 10.28 2.43 30

SC/ST & OBC

52 Loans for co-operation 6425 0 0 0 0

53 Loans for Village & 6851 0.01 0.01 0.01 0

Small Industries

Total 1457.57 1389.16 1337.68 119.8875

Status of spending Under fully over Nil Total

During 2010-11 spending utilized spending outlay

Sign color indicator Major Head

No of Major Heads 30 8 6 9 53

(25)

The over spending observed among six major heads are 1-Secretariat social services, 2-Soil and water conservation,

3-Dairy Development, 4-Other Rural Development Programmes5- Roads and bridges and 6-Capital Outlay on

Forestry and Wildlife

The Fully utilization /expenditure budget outlay is observed among the major heads 1-Family welfare, 2-Water

supply and sanitation,3-Urban Development, 4-Industries,5-Capital outlay on education, 6-Capital outlay of Medical

and Public works,7-capital outlay on housing, 8- Loans for Village & Small Industries.

(26)

5. SCSP Patterns of Implementation

(Major Head wise)

Major Head wise implementation of Budget outlay and Expenditure under SCSP

The Chapter is about budget outlay and expenditure during 11th Five year plan under SCSP. The graphs provide

trends about the budget expenditures under each major heads for various services for development, welfare and

social justice of schedule castes people. These graphs also reveal the actual expenditure against budget estimates

and revised estimates under each major head. There are examples, where, the actual expenditure is more than

the budget outlay and less expenditure against the budget outlay. The graphs also reveal that why there is overall

less expenditure under SCSP, as budget outlay is not fully utilized under the major heads. The graphs also provides

the priority attached to each service under SCSP, the new plan services introduced, shows the priority is given to

development services by introducing the plan expenditure under SCSP. As from graphs its evident that the state

has come up certain budget outlay for the first time in present year or previous year like major irrigation, other

rural development works and others.

(All figures in crore)

Under the major head 2211-family welfare the expenditure has been quite appreciable, as the expenditure has

been in excessive against budget outlay to provide family welfare services to the schedule caste people. There is

urgent need of enhancing the budget outlay under Family welfare to Rs.100 crores to provide more services of

family welfare to schedule castes.

(27)

The budget outlay for water supply under major head 2215-Water supply has been fully utilized in the previous

years and the outlay has been increased but there is reduction in budget outlay as per the budget estimates of

2012-13. The outlay and expenditure should be enhanced for providing safe and treated water in the rural areas.

The budget outlay for Housing has been fully utilized and there is enhancement of budget outlay for providing the

services of Housings under SCSP. The budget outlay should be enhanced to cover more schedule castes families

under Dr. Ambedkar Awas Yojna for providing Awas benefits to below poverty line families.

(28)

The budget outlay for urban development under SCSP has been fully utilized and has been increased substantially;

it seems the budget under Major head 2217: Urban Development is being utilized for urban infrastructure

development. The expenditure should incurred in areas or pockets in schedule caste areas for providing better

civic amenities.

The welfare expenditure is in top priority under SCSP. The budget outlay for welfare has not been fully utilized in

year 2009-10 and 2010-11 respectively, the majority of welfare schemes are concerning to promoting education,

poverty eradication and others. The scholarship amount should be enhanced looking at the present inflation lines.

Under the major head 2402: Soil and Water conservation, Schedule caste farmers are helped in improving the

agricultural output. The budget outlay under this major head has been fully utilized but the budget outlay for soil

and water conservation should be enhanced to cover more small and marginal farmer for improving their agriculture.

More schedule caste farmers should be helped for Nala plugging and contour building in their field for water

conservation for enhancing the agricultural yield.

(29)

The budget outlay for Road and Bridges under SCSP was Rs.3 crore and since then the budget outlay has been

given huge boost up, this is again creating Road and Bridges infrastructure. The budget outlay for Road and Bridges

is around 7.86% of entire outlay under SCSP. The schedule caste populated areas should be given priority.

The capital outlay for Medical and Public Health under SCSP was initiated in 2007-08. The budget outlay has been

enhanced from the year 2010-11 to provide special needs of schedule castes. The budget outlay under Medical

and Public Health needs huge outlay for addressing the health issues of SCs in rural areas.

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The capital outlay on Forestry and wildlife under SCSP has been designed to provide livelihood support to the poor

schedule caste families. And budget outlay has been fully utilized under this major head. The budget outlay under

this major head should be enhanced so that more schedule caste families could be helped in income generation

and livelihood activities.

Under spending of Budget outlay under SCSP in Gujarat

Under major head 2014: Administration of Justice, the budget outlay has never fully utilized, this is the most

important service for ensuring justice to the schedule castes people but the expenditure against budget outlay is

abysmally low or negligible.

The expenditure for promoting general education among SCs has not been as per intended budget outlay under

SCSP. Except 2007-08, in remaining years, the budget outlay has not fully utilized, which is matter of concerns, the

implementing agencies should fully utilized the budget outlay.

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The budget outlay for promoting technical education among SCs has been complete neglected. The budget outlay

in 2008-09 remained unutilized, following year around Rs.9.7 remained un spent, in year 2011-12, Rs. 9.95 crore

remained unspent. The budget outlay under technical education should be fully utilized for promoting technical

education among the schedule castes, this will in technical employment.

This is very important service under SCSP for rendering health care. The outlay and expenditure figures suggest

that the budget outlay has not fully utilized under SCSP. The revenue expenditure under medical and Public health

should be enhanced for providing more quality services to SCs.

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The services under Major Head 2202: Information and Publicity play very vital role in the development process

and under SCSP, the budget outlay can be great vehicle for generating awareness among the schedule caste people

for government’s welfare schemes and implementation. The budget outlay has been fully utilized under this major

head.

The budget outlay for promoting and protecting labour rights and technical skills after 10th standard among schedule

caste people, is being fully utilized but the budget outlay needs to enhance substantially to cover more SCs student

under technical skills, which provides them livelihood skills, Besides, there should be special funds for workers of

unorganized sector like agricultural workers for providing the social security.

The services under social security and welfare are very vital services for the schedule castes. The budget outlay for

social security and welfare is fully utilized but under this major head the budget outlay should be increased, as

under this major head, individual benefits can be provided to the most poor among the schedule castes.

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The service of providing nutritional food is very important social service for preventing malnourishment among

the schedule castes. The budget outlay under Nutrition should be enhanced considerably looking at the problem

of malnourishment. The state government should cover not only children but also all the women of schedule

castes. This will help in long run better human development.

Under the crop Husbandry, the budget outlay has been utilized but needs to enhance the budget outlay for helping

small and marginal SC farmers in enhancing their farm productivity. The budget outlay should be increased to

cover more SC farmers under the various schemes. The amount of subsidies and number of beneficiaries should

be increased.

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Under the major head 2403: Animal Husbandry, budget outlay is fully utilized, under this major head, the budget

outlay should be enhanced to help more schedule caste people for livelihood. It provides regular supplementary

income to these people as well as provides Protein us/ nutritious food of animal origin and useful draught powers

of bullocks, donkeys, horses, camels etc. Animal Husbandry provides good employment generation potentials.

The budget outlay under Dairy Development needs to be enhanced to provide more services under the dairy

development, as along with Animal Husbandry, Dairy Development is also very vital aspect for the farmers as well

as for the people of all categories as supplementary source of income.

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Under the Fisheries development, the budget outlay should be enhanced so that more SCs youth could be provided

livelihood opportunities. The youth should be imparted training and tool kits for fisheries development. Besides,

SCs in coastal areas should be provided more equipments for fishing so that their earning gets boost up.

As the state has very pioneering role in cooperative movement in supporting and sustaining the growth of

agricultural development, the budget outlay under SCSP for Co-operation should be enhanced to help more small

and marginal SCs farmers to grow with co-operative model. The budget outlay under cooperative should support

creation of agricultural infrastructure, supply of agricultural inputs, making available adequate and timely credit,

marketing and processing agricultural produce.

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The budget under major head 2501: Special programmes for Rural Development the budget is spent against the

outlay, as special programme for rural development’s main objective is to reduce poverty and unemployment in

rural areas, therefore, there should be more budget outlay.

As schedule caste people in rural areas depend upon land based economic activities for livelihood and wage work,

therefore, the budget for the rural employment should be enhanced considerably to provide wage employment

and build up the village infrastructure of utility. The budget outlay is fully utilized but needs more budget outlay

for covering more rural families.

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The budget outlay under major head 2515: Other Rural Development is matching amount for developmental

works as recommended by 13th Finance Commission for community development.

The budget outlay under major head 2702: minor irrigation should be increased to provide benefits of minor

irrigation to small and marginal schedule caste farmers. As schedule caste farmers in arid /semi arid regions can

through rain water harvesting can improve their farm yields. There needs to be substantial budget outlay for

helping more farmers.

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The budget outlay under major head 2801: Power should be increased for providing subsidy for electrification of

Schedule caste families in rural areas. The below poverty line families should be helped in getting free electricity

connection.

The budget expenditure under major head 2851: Village and small industry is lower than the budget outlay. As this

employment generating component through cottage industry, therefore, budget outlay should be utilized by

conducting more training and skill development and financial assistance. The schedule caste people, having

traditional skills should be motivated to skill up gradation.

There should be higher budget expenditure under capital expenditure on education, Sports and culture, as this

will create more educational institutions for schedule caste communities for social development. The pockets

with higher concentration of schedule caste population should be provided more employment oriented training

imparting institutions.

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The expenditure under major head 4225: Capital outlay on welfare of schedule caste has been less than the

budget outlay in last four year and the revised estimate of 2011-12 also suggest so that there would expenditure

of Rs. 3.16 crores against budget outlay of Rs.20.67 Crores. With budget outlay, there should be more libraries for

schedule caste students for supporting the higher study. The budget outlay could also be used for providing primary

health care services to pockets having schedule caste population.

The budget outlay under major head 6225: Loans for welfare of SCs has been increased consistently to assist

schedule caste people for higher education and entrepreneurship, under this service subsidy component should

be increased.

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The capital outlay on village and small industries should be enhanced and cooperatives should be provided more

financial help to the schedule caste people. Besides, new training institutions should be created for imparting

training to the schedule castes.

The capital outlay on minor irrigation for providing irrigation facilities to the schedule caste farmers can play

better role in enhancing the farm yield. The budget outlay in year 2011-12 is appreciable but it seems from

revised estimates the expenditure will be very low. The budget outlay for the year 2012-13 is Rs. 119.12 crores,

Hope it is utilized fully in benefiting the schedule caste farmers.

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The budget outlay for Capital outlay on major irrigation is first time introduced, this is notional type expenditure,

as expenditure under major irrigation will develop state’s irrigation infrastructure. The revised estimate for the

year 2011-12 is Rs. 88.75 crores against the budget estimate of Rs.220 crores and the budget estimates for the

year 2012-13 is Rs. 713 crores, which is around 22.94% budget outlay of total budget outlay of Rs. 3108.60 crores

under SCSP.

The budget outlay under major head 4515: capital outlay on other rural development work is also first time.

During the present year, around Rs.30.16 crores have been earmarked for balanced development of Districts and

Rs. 28.63 crores have been earmarked for Government’s new initiative for local governance (Aapno Taluko Vibrant

Taluko= Our Block Vibrant Block).

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• The Budget outlay should be earmarked under SCSP as per the proportionate population of the state and it

should be revised to population of schedule caste as per the census of 2011.

• The state should formulate its own guidelines for implementation keeping the reality of prevailing socio-

economic conditions of schedule castes. The guidelines should be devised for the Twelfth Plan which can

overcome the difficulties experienced in the past and ensure that the sub Plans are implemented in letter and

spirit”.

• The best option would be to bring the legislation for implementation of SCSP and keeping the non-lapsable,

non-divertible nature of budget outlay, even if the grants remains un-utilized, such grants should carry forward

in the subsequent years for utilization for the said purpose.

• Scheduled Caste Sub Plan and Tribal Sub Plan (Planning, Allocation and Utilization of Financial Resources) bill

should be passed for better implementation.

• There should be a separate guideline or framework for making budget outlay for provisions of welfare and

civic amenities for schedule castes people in Municipality Corporation. As in each municipality corporation

has considerable percentage of schedule caste population and the each Municipality corporation’s budget

also runs over thousand crore, therefore, there should be a separate guidelines for earmarking budget outlay

for SCs in the municipality corporation as well.

• The state should provide budget outlay as “grants” to the nodal agency implementing SCSP, in such case “the

grant” will remain with nodal agency and it should not be re-deposit able to the consolidated fund of state.

• The schemes should be designed to enhance the access to entitlement of individual /families.

• The entitlement amounts should be realistic with respect to prevailing prices.

• The area development should be restricted to pockets, where Dalit population is considerable percentage.

• The notional allocation and expenditure should be done from General Budget.

• Special efforts need to be taken for promoting quality education and health care, provisions of drinking water

and sanitation.

• Specific programmes should be framed to address the issues of mal nourishment among the schedule castes

children.

• The state-level committees should meet at frequent time period and reports and presentation should be

accessed by all citizens and information should be in public domain through dedicated website, The state

department’s reports should be shared for wider discussion as best practices.

• There should be dialogue with Dalit groups and more sharing of information.

• The outcome budget document should be published.

• There should be evaluation of programme implementation of SCSP and its impact by independent agencies

with participatory approach.

Recommendations

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Annexure

Major Head wise Actual expenditure 2010-11, Budget Estimates 2011-12, Revised Estimates 2011-12and Budget Estimates 2012-13The table below provides information about number of Major Heads (Functional heads), under which budgetoutlay is made for implementation of various welfare and development measure for the schedule castes peopleunder SCSP (Schedule Caste Special Plan) in Gujarat.

(All figures in crore)

2010-11 2011-12 2011-12 2012-13

AE BE RE BE

Sr. Major_head Major_no Total Total Total Total

1 Administration of Justice 2014 0.11 0.63 0.63 0.92

2 Stationery and Printing 2058 0.01 0.04 0.04 0.04

3 General Education 2202 86.9 100.8 99.13 160.33

4 Technical Education 2203 1.9 7.5 3.57 6.77

5 Sports and Youth Services 2204 0.42 0.67 0.59 5.8

6 Art and Culture 2205 0.98 1.7 1.7 6.7

7 Medical and Public Health 2210 33.1 61.77 65.69 67.37

8 Family Welfare 2211 26 23.21 26.71 46.39

9 Water Supply and Sanitation 2215 52.5 132 132 57.5

10 Housing 2216 40.88 52.3 52.3 90.11

11 Urban Development 2217 138 159 209 340

12 Information and Publicity 2220 3.4 3.85 3.85 5.92

13 Welfare of SC/ST & OBC 2225 283.78 339.81 322 505.33

14 Labour and Employment 2230 13.5 20.24 15.82 10.42

15 Social Security and Welfare 2235 89.53 110.62 103.32 168.25

16 Nutrition 2236 14.99 17.43 17.43 11.39

17 Secretariat Social Services 2251 3.46 5.81 5.88 5.5

18 Crop Husbandry 2401 39.27 47.1 47.1 57.96

19 Soil and Water Conservation 2402 11.76 11.78 11.8 14.1

20 Animal Husbandry 2403 5.41 6.72 6.32 8.16

21 Dairy Development 2404 3.52 5.36 5.36 15.11

22 Fisheries 2405 2.58 1.5 1.44 1.3

23 food storage and warehouse 2408 0 5 0.99 13.2

24 Co–operation 2425 11.03 12.13 12.08 12.63

25 Special Programmes for Rural 2501 26.27 31.98 24.42 25.14

Development

26 Rural Employment 2505 16.6 17.59 17.59 38.49

27 Other Rural Development 2515 56.42 50.68 50.65 73.65

Programmes

28 Minor Irrigation 2702 30.03 15.51 15.51 21.5

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29 Power 2801 2.5 5 1.75 5

30 Non–conventional Sources of 2810 0 0 0 3.51

Energy

31 Village and Small Industries 2851 26.6 26.9 25.7 29.76

32 Industries 2852 0.25 0.27 0.27 0.28

33 Roads and Bridges 3054 198.04 194 224 224

34 Tourism 3452 0 0 0 0

34 Other General Economic Services 3475 0.05 0.01 0.01 0.01

35 Capital outlay on Public Works 4059 1.2 0.58 0 0.58

36 Capital Outlay on Education Sport, 4202 14.21 28.81 16.34 14.35

Arts and Culture

37 Capital Outlay Medical and on 4210 68.34 64.84 64.84 60.02

Public Works

38 Capital outlay on family welfare and 4211 0 0 0 0.53

39 Capital outlay on housing 4216 2.28 1.76 1.76 0.58

40 Capital outlay on urban development 4217 0 50 0 0

41 Capital Outlay on welfare of 4225 3.46 20.67 3.16 37.12

SC/ST & OBC

42 Capital Outlay on Other Social 4250 0.06 4.41 0.81 23.53

Services

43 Capital Outlay on Forestry and 4406 18.04 24.35 24.35 24.35

Wildlife

44 Capital outlay on other rural 4515 0 29.83 29.83 61.29

development work

45 Capital outlay on major irrigation 4700 0 220 88.75 713

46 Capital outlay on medium irrigation 4701 0 10 2.28 10.5

47 Capital Outlay on Minor Irrigation 4702 0.01 111.91 35.25 119.12

48 Capital Outlay on Village & 4851 0.01 1.53 1.53 0.28

Small Indus.

49 Capital Outlay on Roads and Bridges 5054 0.01 0 0 0

50 Loans for Welfare of SC/ST & OBC 6225 10.28 12.61 12.25 10.81

51 Loans for co-operation 6425 0 0 0 0

52 Loans for Village & Small Industries 6851 0.01 0.01 0.01 0.01

Total 1337.682 2050.191 1785.784 3108.602

The total expenditure under SCSP in year 2010-11 was Rs.1337.6824 crore for the development and welfare of

schedule castes people and areas, the budget estimates is Rs.3108.58 crore for 2012-13. The revised estimates

for year 2011-12 is Rs.1785.81 crore against the budget estimates of Rs.2050.80 crore in year 2011-12.

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Implementation of SCSP during 2010 to 2012-13

2010-11 % 2011-12 % 2011-12 % 2012-13 %

Actual BE RE BE

Rs. in % of Rs. in % of Rs. in % of Rs. in % of

crore 2010-11 crore 2011-12 crore 2011-12 crore 2012-13

BE RE BE

Sr. Services Plan+NP Plan+NP Plan+NP Plan+NP

1 Total of General services 0.1264 0.01 0.67 0.03 0.67 0.04 0.96 0.03

2 Total of Social Services 789.33 59.01 1036.71 50.55 1058.99 59.30 1487.78 47.86

3 Total of Economic services430.324 32.17 431.53 21.04 444.99 24.92 543.8 17.49

4 Capital account on 1.198 0.09 0.575 0.03 - 0.575 0.02

General services

5 Cap outlay on social and 88.348 6.60 166.66 8.13 86.1 4.82 113.18 3.64

community services

6 Capital Account of 18.07 1.35 402.03 19.60 182.8 10.24 952.07 30.63

economic services

7 Loans and advances 10.285 0.77 12.62 0.62 12.26 0.69 10.82 0.35

Grand Total SCSP 1337.68 100 2050.8 100 1785.81 100 3108.58 100

References

Government of Gujarat (2010), Schedule Caste Sub Plan-2010-11, Social Justice and Empowerment Department,

Sachivalya, Gandhinagar: December, 2010.

IIDS (2006), Human Development and the status of the social Groups in Gujarat.

working Paper Series: Volume I Number 06, 2006, New Delhi: Indian Institute of Dalit Studies.

NUEPA (2009), Elementary Education in India-Progress towards UEE: Flash statistics-DISE 2007-08, New Delhi:

National University of Educational Planning and Administration.

IIPS (2007), National Family Health Survey (NFHS-3), 2005-06: India (Volume 1), Mumbai: International Institute

for Population Sciences.

MHA(2001), Census of India, 2001 & 2011.

Government of Gujarat: Statistical Abstract of Gujarat state – 2009, Directorate of Economics and

Statistics, Government of Gujarat, Gandhinagar: 2010.

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