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Creation of demand driven community village infrastructure including

1. durable assets at the village level.
2. Assets to enable the rural poor to increase the opportunities for sustained employment.

Secondary objective:

Generation of supplementary employment for the unemployed poor in the rural areas.

1. 22.5% of annual allocation shall be earmarked for SCs/STs individual beneficiary scheme.
2. The wage employment under the programme shall be given to Below Poverty Line families.

3.1  The programme will be implemented as a Centrally sponsored scheme on cost sharing basis between the Centre and the States in the ratio of 75:25. In the case of Union Territories, entire funds under the scheme will be provided by the Centre.

4.1  The programme will be implemented through the Village Panchayats.

5.1  Panchayats, Mandals, Nagar Panchayats or traditional village institutions like village Councils and Village Development Boards having statutory character.

5.2 Where the duly elected Village Panchayats are not in existence, their (Village Panchayat/Panchayats) share of funds will be passed on to the concerned Panchayat Samitis who will be responsible for implementing the Gram Samridhi Yojana in those Panchayats. The works to be taken up would however, be decided at the village level itself by the Grama Sabha (Village Assembly) of the concerned panchayats.

6.1  The existing forest villages, which are not part of an existing village panchayat will be treated as a village panchayat.

7.1  The Central assistance will be allocated to the States/UTs on the basis of proportion of rural poor in a State to the total rural poor in the country or as per criteria to be decided by the Government/National Development Council from time to time. The poverty estimates prepared by the Planning Commission will be used for this purpose.

7.2  At the district level, the allocation of funds will be made on the index of backwardness formulated on the basis of equal weightage to the proportion of rural SC/ST population in a district to total SC/ST population in the State and inverse of per capita production of the agricultural workers in that district.

7.3  From the district, the entire funds allocated to each district will be distributed to the village panchayats. DRDAs/Zilla Parishads will release the funds directly to the Village Panchayats within 15 days of receipts of funds from Centre or State. They would not wait for matching share either from Centre or State.

7.4  For the purpose of allocation of funds to the village panchayats, the population of each village panchayat having less than 1000 population will be taken as 1000. There will, however, be no upper ceiling on population for the purpose of allocation of funds to the village panchayats. Weightage will be given to population of SCs/STs. 60% of the resources earmarked for village panchayats will be distributed on the basis of adjusted SC/ST population and 40% on the basis of adjusted total population (including SC/ST population). The manner of calculation is given at Annexure-I.

8.1  Central assistance will be released every year directly to the DRDAs/ZPs in two installments, subject to the fulfillment of the following conditions:

1. First instalment: The districts which obtained second/subsequent instalment of funds in the preceding financial year shall automatically receive the first instalment. But those districts which did not receive the second instalment in the preceding financial year shall have to submit the proposal for the 1^st instalment with necessary documents as mentioned under Para 8.1(b).

In case of cold snow bound districts viz. Kinnaur, Lahul and Spiti, Leh, Kargil and those districts of North-Eastern India to be decided mutually between the Central Government and the State Government concerned, which have a limited working season, the entire Central assistance shall be released in one instalment.

2. Second instalment: The second instalment of Central assistance will be released on request from the DRDA/ZP in the prescribed proforma as per Annexure – II and on fulfilment of the following conditions:

1. 60% of the total available funds, that is opening balance of the year ( in case of proposal for first instalment, opening balance of the previous year) plus the amount received including the State share should have been utilized at the time of applying for the second instalment.
2. The opening balance of the district i.e. the aggregate balance with village panchayat should not exceed 15% (20% for the year 1999-2000) of the district allocation during the previous year. In case, the opening balance exceeds this limit, the central share of the excess will be deducted at the time of release of second instalment.
3. The State Government have made sufficient provisions in their Budget to match the Central release.
4. The State Government should have released all itks contribution (including those of previous year) due up to the date of the application. In the event of shortfall in State share, corresponding amount of Central share will be deducted from the amount of Central share of second instalment of current year.
5. Submission of Audit reports for JGSY )for JRY year 1999-2000) for the last year and submission of Action Taken Report on the comments made in the audit report of previous year.
6. Submission of Utilization Certificate from DRDAs/ Zilla Parishads based on reports received from Panchayats for the previous year should be available in the prescribed proforma at Annexure-III.
7. Submission of non-diversion and non-embezzlement certificate.
8. Certificate indicating that all the funds are kept in the Savings Bank Account/Post Office.
9. Certificate that the Village Panchayats have prepared the Annual Action Plan.
10. Certificate by the DRDA/Zilla Parishad to the effect that Village Panchayats have been disbursed the funds as per entitlement according to these guidelines.
11. All pending progress/monitoring reports should have been sent.
12. Details of expenditure incurred in respect of SC/ST sector under JGSY i.e.22.5% funds earmarked at Village Panchayat level during the previous year should be furnished. In case of shortfall in expenditure on SC/ST sector, proportionate deduction (i.e.75% shortfall) will be made.
13. Certificates to the effect that
1. no work started more than two years ago remains unfinished.
2. all conditions laid-down in guidelines are being fulfilled.

   Any other conditions imposed from time to time will also have to be complied with.

8.2  In case of districts, to which funds are released in one instalment, funds will be released on fulfillment of the conditions laid down in Para 8.1 (b) supra.

8.3  For convenience, a check list to be furnished alongwith the proposal is given in Annexure-IV.

9.1  State Government shall release its matching share to the DRDAs/ZPx within a week after the release of Central assistance.

10.1 The funds to Village Panchayats will be distributed by the DRDAs/ZPs within fifteen days of the receipt of the funds by the DRDAs/ZPs from the Central or the State Government.

10.2  In so far as forest villages are concerned DRDAs/ZPs will place the allocated funds at the disposal of the respective district level forest officials for taking up works under the programme in these villages. The forest authority at the district level will utilize these funds/take up works in the forest village through a committee of five members, consisting of at least one SC/ST and a women, as per felt need of the village community.

11.1  Diversion of resources from one district to another will not be permitted. Similarly, diversion of resources from a village panchayat to another village panchayat will also not be permissible.

12.1  The Village Panchayaths should spend the funds made available to it during the year in which it is made available. If the carryover funds are more than 15% (20% for the year 1999-2000) of the funds received during a particular year, a cut will be imposed in the share of village panchayat to the extent of excess unspent balance. The funds so deducted may be distributed to other panchayaths within the Panchayat Samiti.

13.1  To maintain the financial discipline, a mandatory deduction(s) on account of late submission of proposal by the State Government shall be imposed depending upon the date of receipt of proposal for release of second instalment under JGSY. Under the system, there will be progressive deductions for proposal(s) received in the month of January and February will face a cut of 15% and 30% respectively on the total Central allocation for the year. Incomplete proposals will not be accepted. The date on which last information is received from the State shall be treated as date of receipt of proposal.

13.2  Notwithstanding the above provision (Para 8.1), State should submit the proposal for second instalment on or before 15^th February every year. The acceptance of proposal(s) after 15^th February will be considered only under exceptional circumstances. Proposals will not be accepted after February under any circumstances.

14.1  The JGSY funds (Central share as well as State share) shall be kept in a nationalized bank or a Post Office in an exclusive and separate savings bank account by the Zilla Parishads/DRDAs/Village Panchayats.

15.1 The interest amount accrued on the deposits of the JGSY sums shall be treated as part of the JGSY additional resources.

16.1  Drawal of funds by the DRDAs/Zilla Parishads from the JGSY accounts shall only be made for distribution of funds among the village panchayats.

16.2 The amounts for payment from the account of the village panchayat should be drawn through a cheque. The cheque shall be signed by the Head of the panchayat alongwith another person who has been specially authorized by the village panchayat by a Resolution. The other person must be a member of the village panchayat or Secretary of the Panchayat. Payment of every amount should be authorized in the meeting of the village panchayat and the Gram Sabha should be informed about it in its following meeting. Drawls for any other purpose shall be unauthorized.

17.1 There will be no sectoral earmarking of resources under JGSY, except the following:

1. 22.5% of the annual allocation must be spent on individual beneficiary schemes for Scs/STs for such work as indicated in Chapter V of JGSY Guidelines. Diversion of funds meant for Scs/Sts to other works is not permitted.
2. 3% of annual allocation would be utilized for creation of barrier free infrastructure for the disabled. In case, funds are not utilized under this Head, the village panchayat may utilize the funds for other works under JGSY.

18.1 Village Panchayats may spend upto a maximum of 7.5% of the funds or Rs.7500/- whichever is less during a year on the Administrative /Contingencies and for technical consultancy.

19.1  The Village panchayat is permitted to spend upto a maximum of 15% on maintenance of the public assets within its geographical boundary. The responsibility for maintenance of assets created under the erstwhile programme of NREP/RLEGP and JRY is that of the village panchayat.

20.1 Effort should be made by the Village Panchayats to incur only such expenditure on administration/contingencies and maintenance of assets which are absolutely necessary. Strict economy should be observed in incurring such expenditure. Unspent balances under these heads will form part of programme resources of the JGSY.

21.1  All works that result in the creation of durable productive community assets can be taken up under the programme as per the felt need of the area/people by the village panchayat. The works that can be taken up under the programme are given in following paras.

1. Infrastructure for Scs/STs habitations
2. Infrastructure support for Swarnjayanti Gram Swarozgar Yojana (SGSY)
3. Infrastructure required for supporting agricultural activities in the village panchayat.
4. Community infrastructure for education, health and roads
5. Other social, economic and physical infrastructure

• In taking up these works, the village panchayat may take into consideration the facilities being created under Basic Minimum Services and other Centrally Sponsored Schemes or State Government’s schemes. For instance, while formation of roads is taken up under JGSY, Black topping of roads may be taken up under other programmes.

21.3  While creating rural infrastructure, the wage material-ratio of 60:40 may be suitably relaxed so as to enable the build up of demand driven rural infrastructure. Care may, however, be taken to ensure purely material oriented works are not taken up and simultaneously efforts should be made to take up labour intensive works with sustainable low-cost technology. To provide supplementary wage employment to the rural poor, the wage material-ratio shall be as close to 60:40 as possible.

21.4  Keeping in view the importance of primary school buildings, funds may be released for construction of school buildings would be released under Operation Black Board (OBB). This would be out of savings, if any, from JGSY and will be determined towards the end of each year. Rural Development Department of the State Government will be responsible for coordination with the State Education Department and submission of proposal under OBB. The funding pattern under the scheme would be 75:25 between Centre and State. The funds under the scheme will be released directly to the DRDAs/ZPs. State Government may send proposals only in respect of schools for at least three class rooms. This fund will not be available for extra classrooms.

21.5 While there is no ceiling on the cost of works to be taken up under the programme, only such works should generally be taken up whose size and cost and nature are such that they may be implemented at the local level and do not involve high level of technical inputs, etc. The works taken up must be kept within the overall Annual Action Plan (As per Para 22.1). The following works shall not be taken up under the programme.

1. Building for religious purposes such as temple, mosque, gurudwara, church etc.
2. Monuments, Memorials, Statue, Idols, Arch Gate/Welcome Gate.
3. Bridges.
4. Building for higher secondary schools
5. Building for colleges
6. Desiltation of irrigation tanks.
7. Black topping/cementing of roads, other than roads within the village site.

21.6 Works taken up under the programme should be of a durable nature and should meet technical standards and specifications, if any, for the concerned work/area. The village panchayats may also take technical advice from the block officials or from reputed NGOs in the area, if needed.

21.7 Use of low cost technology and local materials shall be encouraged.

21.8  While fixing technical specifications, efforts should be made to utilize, to the maximum extent, local materials and low cost technology developed by various institutions.

21.9  The items of work chosen by the Village Panchayat in the manner prescribed in para 21.6 (supra) shall not be allowed to be changed either at the block or district levels.

21.10  In order to facilitate the technical scrutiny of the Plan of Action of the Village Panchayat, the authorities at the Panchayat Samiti may prepare and approve standard designs and cost estimates of those items of works which are generally taken up by the village panchayats. It will help in quicker preparation of the Plan of Action by the Village Panchayats and also quicker technical scrutiny by the Gram Sabha.

22.  Annual Action Plan:

22.1 In keeping with the above guidelines, each Village panchayats shall prepare before the beginning of each financial year, an Annual Action Plan equivalent of value of 125 percent of its share of funds allocated in the preceding year before the beginning of each financial year. No work can be taken under JGSY unless it forms part of the Annual Action Plan.

22.2  While preparing the Annual Action Plan, completion of the incomplete works should be given priority over the taking up of new works. No work shall be taken up by the Village Panchayat, which cannot be completed in one year or at the most within two financial years.

22.3  The Annual Action Plan prepared by the Village Panchayats should be thoroughly discussed in the meeting of the Gram Sabha. The Gram Sabha shall approve the Annual Action Plan including the individual works to be taken up for SCs/STs. This exercise shall be completed before May 31^st of each year.

22.4  The Panchayats will thereupon execute the work. The Panchayats will have the power to execute works/schemes upto Rs.50,000/- with the approval of Gram Sabha. No other administrative or technical approval will be necessary. However, for works/schemes costing more than Rs.50,000/- after taking approval of the Gram Sabha, the Village Panchayat shall seek the technical/administrative approval of appropriate authorities.

22.5  In case of shortage of technical staff or otherwise, it shall be permissible for the village panchayat to have the projects technically appraised by even private technically qualified people. State Government should lay down norms for employment of such private technical qualified staff.

23.  Implementing Agencies:

23.1  The programme will be implemented through the Village Panchayats, who will be responsible for planning and execution of the Yojana. The technical supervision will be the responsibility of the Panchayat Samitis and DRDAs/ZPs.

23.2  Forest Departments in the district will implement the programmes in forest villages in consultation with the people of the concerned forest villages keeping in view the JGSY guidelines and Forest (Conservation) Act,1980, as amended from time to time.

23.3  At the village level, the entire work relating to co-ordination, review, supervision and monitoring of the programme will be the responsibility of the Village Panchayat.

23.4  At the district level, the DRDAs/Zilla Parishads and at the intermediate level the Panchayat Samities will have overall responsibility for guidance, co-ordination, supervision, periodical reporting and monitoring the implementation of the programme. The DRDAs/Zilla Parishads will also be accountable to the State Government to ensure that the returns/reports in respect of the works taken up for execution in the district are furnished in time.

24.  Muster Rolls

24.1  Muster rolls shall be maintained for every works separately, showing the details of wages paid to workers. The muster rolls for all works should have entries showing the number and details of Scheduled Castes/Scheduled Tribes/Women and others who have been provided employment. Those responsible for the preparation of muster rolls should be responsible for these entries also. To prevent non-payment or under payment of wages or any manipulation of muster rolls, muster rolls should be maintained in stitched forms and all its pages must be numbered.

24.2  Muster rolls copies duly certified by Panchayat Sarpanch shall be placed before every Gram Sabha. In addition it shall be made available for public on demand.

25.  Ban on contractors

25.1  Contractors are not permitted to be engaged for execution of any of the works under the programme. No middleman or any other intermediate agency should be employed for executing works under the programme. The full benefit of wages to be paid should reach the workers and the cost of the works should not involve any commission charges payable to such contractors, middlemen, or intermediate agency.

26.  Records of the Assets Created

26.1  Each village panchayat and block/district shall maintain complete inventory of the assets created under the programme giving details of the date of the start and the date of completion of the project, cost involved, benefits obtained, employment generated and other relevant particulars. Signboards should be displayed near the works giving these details. Photographic record of the work may also be kept of the various stages of implementation before start during implementation and after completion.

27.  Audit of works

27.1  Both physical and financial audit of the works under the scheme are compulsory. This must be carried out at the end of the financial year by each district. The audit will be done either by Local Fund Auditors or by the Chartered Accountants appointed by the State Government. The audit report together with action taken on the auditor’s observations shall be furnished at the time of release of second instalment of funds for the next financial year.

28.1  In order to ensure social control of the JGSY, meeting of the Gram Sabha shall be held every quarter at a fixed date, time and place to consider the issues regarding the planning, execution, monitoring and supervision of the JGSY. These meetings shall be open to all members of the village community, who shaoll be free to raise any issue regarding implementation of the Yojana. The Gram Sabha should also be kept informed about the progress of the implementation of the JGSY and all other related issues.

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WAGES UNDER THE PROGRAMME

 

29.  Wages to be paid on works under the programme.

29.1  The wages under the programme will be paid in cash. The State Governments, however, may provide foodgrains as a part of wages, if there is demand for it, by making their own local arrangement and by utilizing their own resources towards subsidy, if any.

29.2  The wages for a category of employment shall be the same as notified for the relevant schedule of employment under the Minimum Wages Act or higher wages fixed by the State Govt. Through a procedure prescribed by the State Government. The wages to the worker would be paid either minimum wages or higher wages as fixed by the State whichever is higher. There should not be any attempt to avoid or evade the mandatory obligation by denotifying an area or an employment from Minimum Wages Act.

29.3  Where no wage rates are notified either under Minimum Wages Act or by the State Government, Village Panchayath may make payment to the workers at the prevailing agriculture wage rates in the area.

29.4  Equal wages should be paid under the programme to both men and women workers for the same work or works of a similar nature. No discrimination should be made while recruiting men and women workers under the programme.

29.5  As information regarding various notifications issued under the Minimum Wages Act or by the State Govts. Referred to in para 30.2 above may not be readily available with the implementing agencies, the DRDAs/ZPs should bring out a consolidated circular indicating the wage rates prescribed for different categories of employment under the Minimum Wages Act or higher wages fixed by the State Governments.

29.6  The Village Panchayats shall be responsible for payment of prescribed wages to workers under the programme.

29.7  Payment of wages should be made on a fixed day of the week which should preferably be the local market day.

29.8  In case the implementing agencies do not pay the wages for a category of employment at a rate notified for the relevant schedule of employment under the Minimum Wages Act or by the State Govt. the DRDA may withhold the grant under the Jawahar Gram Samriddhi Yojana to the Village Panchayat.

29.9  Where the Central Government finds that the above provisions are not being followed, it may withhold the release of funds under the programme to the concerned DRDA/ZP.

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INDIVIDUAL WORKS

 

30.1  As indicated in Para 16.1 of Chapter-III, 22.5% of the amount released to the Village Panchayat shall be used for individual works for SCs/STs. The illustrative list of such works which can be taken up for the benefit of identified individuals belonging to SCs/STs is as under.

Economic Assets

1. Development of allotted land in the case of allottees of ceiling surplus land, Bhoodan land, Govt. land.
2. Social forestry works, such as fuelwood and fodder plantations on the private lands belonging to SCs/STs.
3. Agri-horticulture, floriculture, fruit-tree plantation on the private lands belonging to SCs/STs.
4. Worksheds or infrastructure for any self-emoployment programme.
5. Open Irrigation Wells/Bore-wells for irrigation.
6. Pond excavation re-excavation with primalry support for pisciculture.

 

Assets for Improving the Quality of Life.

7. Dwelling units.
8. Sanitary Latrine and smokeless chullahs.

30.2  Priority should be given to provide economic assets to the individual beneficiary for sustainable employment. Assets such as dwelling units, sanitary latrine, smokeless chullha etc. may be given lesser priority and should be considered under exceptional cirlcumstances.

30.3  While providing assets to individual kpoor, his/her participation in the work may be ensured.

31.1  The Village Community may be encouraged to contribute either physically or financially for the development of village infrastructure. The Village Panchayats may, subject to relevant laws, even raise additional resources through appropriate cess/tax to ensure people’s participation by inculcating on them the feeling of community ownership.

32.1  The Village Panchayat may accept donations from charitable institutions/individuals either to expand the programme or to ensure the durability of the assets requiring funds. These funds should be treated as additional and dovetailed with the JGSY to complete the works.

33.  Convergence/Dovetailing with the other programmes

33.1  Funds available from other sources like markekt committees, co-operatives, cane societies or other institutions could also be dovetailed with the JGSY funds for similar purposes. The funds available with the Village Panchayats from other sources such as National Finance Commission, State Finance Commission, State Departments etc. can also be dovetailed for construction of durable community assets/works. However, JGSY funds should not be used as a substitute for Departmental Plan funds of different Departments and agencies.

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MONITORING AND EVALUALTION

 

34.1  For effective implementation of the programme, physical monitoring through field inspections is important. Officers dealing with JGSY 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. Likewise, officers at the district, sub-division and block levels must closely monitor all aspects of the programme through visits to works sites in the interior areas. A schedule of inspection, which prescribes the minimum number of field visits for each supervisory level functionary from State Government to block level, should be drawn up, and strictly adhered to. If any official during their inspection finds any irregularly, he should immediately bring into the notice of Collector/Project Director, DRDA/CEO, Zilla Parishad so that appropriate action is taken against the persons responsible. The district authorities may also seize the accounts of the Gram Panchayats till the proper inquiry is completed.

35.  Vigilance Committee at the Village Panchayat level:

35.1  The Gram Sabha shall appoint a vigilance committee for each village under its jurisdiction to oversee, supervise and monitor the implementation of each work under the programme. This committee shall consist of not more than three persons living in the village and who in the judgement of the panchayat will be of assistance to it in this regard. The Committee must include at least one representative of the SCs/STs and one representative of women.

36.1  At the block district and State levels works under JGSY will be monitored by the Monitoring and Vigilance Committees constituted for overseeing the various programmes of the Ministry of Rural Development.

37.  Reports and Returns

37.1  It shall be open to the Central Government to prescribe reporting formats-monthly and annual. The State may, if it so desires, call for such additional information in such formats, as it may deem fit.

37.2  The following reports and returns will be submitted to the Central Government by the DRDAs/ZPs.

1. A monthly Progress Report to be furnished by in proforma – 1 by the 10^th of every succeeding month.
2. A detailed Annual Report to be submitted by 25^th April of the succeeding year. Proforma – II will be used for this purpose.

37.3  The reports would enable the authorities both at the Centre and the State level to monitor the progress of the programme and to keep a close watch on the infrastructure created, the employment generated and also on the quality and trend of implementation and to take mid-course corrections.

38.  Social Audit of JGSY at the Village Panchayat Level

38.1  Social audit of the works taken under JGSY shall be ensured in accordance with Para 27.1 of Chapter-IV.

39.  Evaluation studies

39.1  The States/UTs should conduct periodical evaluation studies on the implementation of the programme.

39.2  Evaluation studies may be given to the reputed institutions and organizations, on issues thrown up by the concurrent evaluation meriting detailed studies. These studies may be given by the centre as well as the States/UTs. Copies of the evaluation studies conducted by the State should be furnished to the Central Government.

39.3  Remedial action shall be taken by the States/UTs on the basis of the observations made in these evaluation studies and also in the concurrent Evaluation conducted by the Government of India.

 

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MISCELLANEOUS

 

40.1  To provide necessary orientation to the officers handling JGSY work at various levels training arrangements will have to be organised at State /DRDA/Panchayat Samiti/Intermediate level Panchayat/Village Panchayat levels. Regular training workshops/programmes should accordingly be organised for the purpose.

40.2  While organizing training at the State level, organisations like Council for Advancement of People’s Action and Rural Technology, Central Building Research Institute, Central Road Research Institute, suitable state level Technical Institutions, Universities, State Institute of Rural Development and also competent Non-governmental organisations should be involved, so that their expertise could be utilized for imparting training to the functionaries at different level. The objective of the training should be to create awareness of the appropriate technology and various low cost techniques evolved with higher degree of labour intensity, at the same time ensuring durability. Besides these, various operational details and implementation processes of the programme should be clarified during the training to the functionaries associated with the implementation of the JGSY.

41.1  Arrangement for providing facilities like drinking water, rest sheds for the workers and creches for the children coming with working mothers should be made. Expenditure involved for providing these facilities should be met out of the non-wage component under the Yojana.

42.  Redressal of Grievances

42.1  If there are any grievances in regard of the implementation of the JGSY by the implementing agencies including proper payment of wages under the Yojana, representation can be made to the higher authorities for redressal. In case of works executed by Panchayats, representations may be made to the Block Development Officer, PD, DRDA,CEO, ZP or the District Collector. It will be the responsibility of these functionaries to enquire into the representation and redress the grievancies in an appropriate manner.

Assume a district with four villages A, B, C & D, which have SC/ST population and total population (as per 1991 census) as given in the following table. The JGSY resources available for distribution among the Village panchayats of a district are say Rs.10 lakh. The share of village panchayat according to prescribed criteria will be worked out in the following manner:

Actual Population as per 1991 Cens Deemed Population