Evaluation of SC/ST Expenditure in Rural Drinking Water Supply Sector in Madhya Pradesh

One of the key concerns of Indian policy makers has been the welfare and development of the weaker sections of the society. In the five year plans, many development programmes for the welfare of backward classes are made in different fields. One main lesson of the past decade is that for a variety of reasons, the weaker sections of the population could not able to secure their fair share of the benefits of provisions make under different heads. One of the directive principles of state policy in the constitution express that the state will promote with special care the educational and economic interests of weaker sections of the people, and in particular, of the SC (Scheduled Castes) and ST (Scheduled Tribes). The SC and ST in the country having very a small number of assets and are commonly dependent on agricultural labour and other low-income occupations, according to census 2011 about 45 percent of the SC/ST workers are agricultural labourers and this percentage is about 54 in MP (Madhya Pradesh). Out of total SC/ST worker in

is low compared to the general literacy level, according to 2011 census literacy rate in India of overall population is 74 percent while for SCs and STs It is just 66 percent and 59 percent respectively. About 76 percent of all the SCs and 90 percent of all the STs of the country live in the rural areas1. In view of the persistent and widespread socioeconomic backwardness of SCs and STs; a distinct need was felt for innovative policy intervention to enable these groups to share the benefits of growth in a more equitable manner. The government prepared a separate development plan called TSP (Tribal Sub Plan) for STs in fifth plan. The SCP (Special Component Plan) followed it for the SCs in the annual plan (1979-80). Tribal areas suffer from the problems of non-availability or scarcity of safe drinking water. All tribal habitations should be provided with safe drinking water supply sources and sanitation facilities by the end of the twelfth plan period2. Planning commission of India‘s guidelines for formulation, implementation and monitoring of special component plan for the scheduled castes and tribal sub-plan for scheduled tribes states that, the two special strategies should ensure that all the general development sectors, both at the central and state levels, earmark funds for SCs and STs in proportion to their population. It also states that TSP and SCP should have separate budget head, non divertible and non-lapsable. There should be separate budget for SCP and TSP and it should be monitored and evaluated separately to fulfill the constitutional obligation towards SC/ST population. For equity we would understand the scenario of marginalized community (SC/ST) in the expenditure of rural water supply budgets. There is the need to know that, is state government is incurring an expenditure in the SCP and TSP according to the plan guidelines or not?

According to 2011 census in MP 78 percent households have access to safe drinking water (Tap water, hand pump and tube well were considered as safe sources of drinking water in the census of India 2011) and for SC and ST it is 81 and 71 percent respectively. In rural MP about 73 percent households have access o safe drinking water but for SC and ST it is 77 and 70 percent respectively. According to census 2011 for 16 percent households in MP treated tap water is the main source of drinking water while for SC and ST it is 14 and 5 percent respectively, and in rural areas this percentage is just 5 percent in MP whereas only 4 and 3 percent households for SC and ST respectively are reached by treated piped water supplies, the rest are still living beyond the pipe.

On the basis of ‗distance travelled‘ to collect the water, in rural MP only 13 percent had availability of drinking water within the premises which was just 7 and 6 percent for SC and ST respectively in rural areas. Availability of drinking water in MP ―away‖ from the household was 36 percent in rural MP it was 39 and 43 percent for SC and ST respectively. In SC and ST areas proportion of households that have to fetch water from a distance exceeding 500 meters, is more than the MP average. It was clear from the census data that in MP situation of STs are much poorer in respect of rural water supply in comparison with rural MP and SCs. So it was the responsibility of state government after the census 2011 that to put more money for STs to improve their situation in rural water supply sector. For examining state government‘s intention we are going to check last 17 years pattern of government spending in rural water supply sector.

WSS expenditure (SC/ST) increased by 23 times during 2001-02 to 2016-17, increased from Rs 51 crore in 2001-02 to Rs 1195 crore in 2016-17. But in the budget 2017-18 it has comedown drastically from Rs 1195 crore (2016-17) to Rs 271 crore (2017-18), in this drop a big amount of about Rs 680 crore was cut down in Nirmal Bharat Abhiyan, that was rooted through SCP and TSP in the year 2016-17 RE, but now going through PRIs but not through SCP and TSP. About Rs 185 crore came down as a cut of capital expenditure in piped water supply in rural areas. During the same time (2016-17 to 2017-18) total WSS expenditure increased from Rs 3479 crore to Rs 4594 crore but there is big cut in SCP and TSP expenditure in the sector. During 2001-02 to 2017-18 growth rate of SC/ST expenditure of WSS was 16.51 percent, while for total WSS it was 15 percent. During last five years 2013-14 to 2017-18 growth rate of SC/ST expenditure of WSS is negative by -5.6 percent, and for total WSS it was 31 percent. It means that in

On an average during 2001-02 to 2017-18 share of SC/ST expenditure in total WSS expenditure was 26.3 percent. The largest share of the SC/ST expenditure in total WSS expenditure was recorded in 2007-08 when it was 37.6 percent, and 2017-18 was the year in which share was recorded at its lowest of 5.9 percent. During 2001-02 to 2017-18 share of SC/ST expenditure in total WSS expenditure registered an annual growth rate of 1.19 percent. During 2001-02 to 2013-14 growth is 7.05 percent while during 2013-14 to 2017-18 it is negative by -27.7 percent.

Source: Computed by Author using Madhya Pradesh State Budget, Volume 3, 2001-02 to 2017-18

When we divide SC and ST expenditure separately, we see STs are the big sufferer from the 2017-18 drop, while the big amount has been reduced from the SCs expenditure but ST expenditure has become zero in the year. During 2001-02 to 2016-17 SC/ST expenditure increased by 23 times and the SC and ST expenditure separately increased by 16 and 37 times respectively. SC expenditure was stand at Rs 33 crore in 2001-02 and reached at Rs 535 crore in 2016-17, it was Rs 18 crore for ST in 2001-02 and reached at Rs 659 crore in the year 2016-17.

2001-02 33 18 51 2002-03 51 31 83 2003-04 42 23 65 2004-05 45 50 96 2005-06 88 69 157 2006-07 121 82 204 2007-08 181 174 355 2008-09 175 191 366 2009-10 138 145 283 2010-11 151 182 333 2011-12 150 174 325

2012-13 191 250 442 2013-14 227 338 565 2014-15 190 301 491 2015-16 358 427 786 2016-17 RE 535 659 1195 2017-18 BE 271 0 271 Source : Computed by Author using Madhya Pradesh State Budget, Volume 3, 2001-02 to 2017-18

The annual growth rate for SC expenditure is 15.23 percent per anum while it is 8.8 percent for ST expenditure for the period of 2001-02 to 2017-18. Within the 2001-02 to 2017-18 average expenditure per anum for SC was (Rs. 173 crore), and for ST was (183 crore). During 2013-14 to 2017-18 growth rate for the SC expenditure is 15 percent per anum but for STs expenditure growth rate is negative by -66 percent. Analysis shows that during 2013-14 to 2017-18 government putted extra money in SC expenditure in comparison with ST expenditure in WSS sector, in 2017-18 government decreased expenditure in both categories but it has got zero in ST expenditure.

2001-02 7 4 11 2002-03 12 7 19

2003-04 11 6 16 2004-05 10 11 20 2005-06 13 10 23 2006-07 20 14 34 2007-08 19 18 38 2008-09 18 20 37 2009-10 15 15 30 2010-11 13 15 28 2011-12 12 14 26 2012-13 13 17 30

2016-17 RE 15 19 34 2017-18 BE 6 0 6 Source : Computed by Author using Madhya Pradesh State Budget, Volume 3, 2001-02 to 2017-18

On an average during 2001-02 to 2017-18, SC/ST share in total WSS expenditure was 26 percent, for SC and ST separately it was 13.10 and 13.24 percent respectively. During 2001-02 to 2017-18 growth rate of SC/ST share in total WSS expenditure was 1.19 percent per anum, for SC and ST separately it was 0.08 and 1.86 percent respectively. During 2013-14 to 2017-18 share of SC/ST in total WSS expenditure has come down drastically as it is showing a negative growth rate of -28 percent, for SC and ST separately it was -12 and -44 percent respectively. In last five years SC/ST expenditure in WSS has come down but main cut down was in ST share.

Source: Computed by Author using Madhya Pradesh State Budget, Volume 3, 2001-02 to 2017-18

On an average during 2001-02 to 2017-18, as regards expenditure on two categories within WSS, SC is getting 53 percent and ST is getting just 47 percent. In total SC and ST population of MP, SC share is 43 percent and ST share is 57 percent. While the share of ST population is 57 percent in total SC/ST population of MP but this vulnerable section of the society is getting just 47 percent share of WSS expenditure in MP.

SC/ST total WS expenditure has been increased by 10 times from 2001-02 to 2016-17, increasing from Rs 51 crore in 2001-02 to Rs 515 crore in 2016-17, but after this there is drop of Rs 244 crore in the year 2017-18. Expenditure increased by Rs 26 crore per anum during 2001-02 to 2017-18, with the annual growth rate of 13.8 percent. During 2001-02 to 2017-18 growth rate of SC/ST expenditure of WS was 13.8 percent, while for total WS it was 12.5 percent. During last five years 2013-14 to 2017-18 growth rate its WS expenditure for SC/ST.

On an average during 2001-02 to 2017-18 share of SC/ST expenditure in total WS expenditure was 25.23 percent. The largest share of the SC/ST expenditure in total WS expenditure was recorded in 2007-08 when it was 36.7 percent, and 2017-18 was the year in which share of the SC/ST expenditure in total WS expenditure was recorded at its lowest of 9.7 percent. During 2001-02 to 2017-18 share of SC/ST expenditure in total WS expenditure registered an annual growth rate of 1.15 percent. During 2001-02 to 2013-14 growth is 6.82 percent while during 2013-14 to 2017-18 it is negative by -22.6 percent.

Source: Computed by Author using Madhya Pradesh State Budget, Volume 3, 2001-02 to 2017-18

Analysis of SC and ST for WS expenditure separately shows that, during 2001-02 to 2016-17 SC/ST expenditure increased by 10 times and the SC and ST expenditure separately increased by 7 and 16 times respectively. SC expenditure was stand at Rs 33 crore in 2001-02 and reached at Rs 235 crore in 2016-17, it was Rs 17 crore for ST in 2001-02 and reached at Rs 279 crore in the year 2016-17.

2001-02 33 17 51 2002-03 51 29 80 2003-04 41 23 63 2004-05 40 47 87 2005-06 84 66 150 2006-07 118 78 195 2007-08 166 161 327 2008-09 164 179 343 2009-10 130 136 266 2010-11 132 161 294 2011-12 138 160 298 2012-13 175 221 396 2013-14 204 309 513

2014-15 163 269 432 2015-16 198 227 426 2016-17 RE 235 279 515 2017-18 BE 271 0 271 Source : Computed by Author using Madhya Pradesh State Budget, Volume 3, 2001-02 to 2017-18

The annual growth rate for SC expenditure is 12.5 percent per anum while it is 6.3 percent for ST expenditure for the period of 2001-02 to 2017-18. Within the 2001-02 to 2017-18 average expenditure per anum for SC was (Rs. 138 crore), and for ST was (139 crore). During 2013-14 to 2017-18 growth rate for the SC expenditure is 10 percent per anum but for STs expenditure growth rate is negative by -68 percent. The census data of 2011 shows that the situation of ST habitations are much worse than SC habitations while analysis of expenditure shows that during 2013-14 to 2017-18 state government has reduced its investment for STs in WS sector and in 2017-18 BE expenditure has become zero. We see in the table that STs are the big sufferer from the 2017-18 drop, while there is no impact on SCs expenditure but ST expenditure has become zero in the year.

2001-02 8 4 12 2002-03 12 7 19 2003-04 11 6 16 2004-05 9 11 20 2005-06 13 10 23 2006-07 21 14 34 2007-08 19 18 37 2008-09 18 19 37 2009-10 15 15 30 2010-11 12 15 26 2011-12 12 13 25 2012-13 13 17 30 2015-16 12 13 25

2016-17 RE 12 14 25 2017-18 BE 10 0 10 Source : Computed by Author using Madhya Pradesh State Budget, Volume 3, 2001-02 to 2017-18

On an average during 2001-02 to 2017-18, SC/ST share in total WS expenditure was 25 percent, for SC and ST separately it was 12.74 and 12.49 percent respectively. During 2001-02 to 2017-18 growth rate of SC/ST share in total WS expenditure was 1.15 percent per anum, for SC and ST separately it was 0.07 and 0.85 percent respectively. During 2013-14 to 2017-18 share of SC/ST in total WS expenditure has come down drastically as it is showing a negative growth rate of -23 percent, for SC and ST separately it was -5 and -46 percent respectively. In last five years SC/ST expenditure in WS has come down but the share of STs is coming down much faster.

Source: Computed by Author using Madhya Pradesh State Budget, Volume 3, 2001-02 to 2017-18

On an average during 2001-02 to 2017-18 in WS expenditure SC share is 53 percent and ST share is 47 percent. Like WSS, STs are not getting their share in WS expenditure according to their population share of 57 percent; they are getting just 47 percent share of WS expenditure.

Total SC/ST expenditure in RWS increased by 17 times during 2001-02 to 2016-17, increasing from Rs 18 crore in 2001-02 to Rs 303 crore in 2016-17. Expenditure increased by Rs 17 crore per anum during 2001-02 to 2016-17, with the annual growth rate of about 18 percent. The growth rate during 2001-02 to 2013-14 is 25 percent but during 2013-14 to 2017-18 growth rate is negative by -72 percent.

Source: Computed by Author using Madhya Pradesh State Budget, Volume 3, 2001-02 to 2017-18

The largest share of the RWS expenditure in total WS expenditure was recorded in 2010-11 when it was 99.76 percent, and 2017-18 was the year in which share of the RWS was zero.

Source: Computed by Author using Madhya Pradesh State Budget, Volume 3, 2001-02 to 2017-18

During 2002-03 to 2016-17 share of RWS registered a negative growth rate of -0.8 percent. During 2013-14 to 2017-18 growth of RWS share is negative by -62 percent.

Source: Computed by Author using Madhya Pradesh State Budget, Volume 3, 2001-02 to 2017-18

which share of the SC/ST expenditure in total RWS expenditure was recorded zero. During 2001-02 to 2016-17 share of SC/ST expenditure in total WS expenditure registered an annual growth rate of 5.39 percent. During 2001-02 to 2013-14 growth is 9.42 percent while during 2013-14 to 2017-18 it is negative by -46 percent.

2001-02 10 8 18 2002-03 43 29 72 2003-04 33 23 56 2004-05 32 46 78 2005-06 68 64 132 2006-07 104 72 176 2007-08 135 147 282 2008-09 142 161 302 2009-10 116 125 241 2010-11 132 161 293 2011-12 137 160 297 2012-13 171 221 392 2013-14 201 309 510 2014-15 163 222 385 2015-16 125 227 352 2016-17 RE 98 204 303

2017-18 BE 0 0 0 Source : Computed by Author using Madhya Pradesh State Budget, Volume 3, 2001-02 to 2017-18 In RWS expenditure, SC expenditure increased by 9.7 times and ST expenditure increased by 27.2 times during 2001-02 to 20016-17, expenditure for SC and ST increased by Rs 9 crore and Rs 17 crore per anum respectively during the same time, the annual growth rate for SC and ST was 14 percent and 21 percent respectively. The growth rate during 2001-02 to 2013-14 was 22 and 29 percent for SC and ST respectively showing a positive and good increment, but during 2013-14 to 2017-18 growth rate is -67 percent and -68 percent for SC and ST respectively. It means that during last 5 years government has reduced the SC and ST expenditure in RWS and in 2017-18 government has stopped investing for SCs and STs.

2001-02 4 3 6 2002-03 16 10 26 2003-04 14 10 24

2006-07 27 19 46

2007-08 22 24 47 2008-09 23 27 50 2009-10 21 23 44 2010-11 17 21 37 2011-12 16 18 34 2012-13 17 23 40 2013-14 19 29 47 2014-15 18 24 42 2015-16 14 25 39 2016-17 RE 9 19 29 2017-18 BE 0 0 0 Source : Computed by Author using Madhya Pradesh State Budget, Volume 3, 2001-02 to 2017-18

On an average during 2001-02 to 2017-18, SC/ST share in total RWS expenditure was 34 percent, for SC and ST separately it was 16 and 18 percent respectively. During 2001-02 to 2017-18 growth rate of SC/ST share in total RWS expenditure was negative by -2.5 percent per anum, for SC and ST separately it was -3.6 and 1.23 percent respectively. During 2013-14 to 2017-18 share of SC/ST in total RWS expenditure has come down drastically as it is showing a negative growth rate of -55.5 percent, for SC and ST separately it was -47.8 and -50 percent respectively.

Figure-10

Source: Computed by Author using Madhya Pradesh State Budget, Volume 3, 2001-02 to 2017-18

On an average during 2001-02 to 2017-18, SCs are getting 44 percent and STs are getting 56 percent share within total SC/ST expenditure in RWS. In total SC and ST population of MP, SC share is 43 percent and ST share is 57 percent. So on an average during last 17 years government is spending according to SC/ST population proportion in RWS sector.

Per capita expenditure analysis is proved to be better indicator in gauging the real benefits reaching the rural people in the state. During 2001-02 to 2017-18, respectively, during 2001-02 to 2016-17 per capita expenditure has grown per a num at the rate of 18 percent for WSS, 14.23 percent for WS and 15.81 percent for RWS. Per capita expenditure for WS is approximately equal to RWS, which indicates that state is not biased towards urban areas for SC/STs, but per capita expenditure of rural population should be greater than urban areas because rural population is much more vulnerable in the context of resources they owned.

Now we should compare per head expenditure of SC/ST with total per head expenditure to know that what‘s the government is spending on vulnerable class of the society that is possessing very meagre resources in comparison with other classes of the society. In WSS SC/ST per head expenditure is Rs 133 while for total it is Rs 190, for WS SC/ST per head expenditure is Rs 104 while for total it is Rs 154 and for RWS SC/ST per head expenditure is Rs 103 while for total it is Rs 132. So it is evident from the analysis that a class that is very low in per capita income and cannot bring water at home with their own resources, government is also neglecting them and not bother for making more expenditure on them and reducing the expenditure in comparison with resourceful class.

Variance is the difference between Actual Expenditure and Budget Estimate (BE). Negative variance indicates under spending and positive variance implies overspending. The table below indicates the following variance in rural water supply expenditure in MP. Although the scope of the study does not cover reason for under spending or

We can see in the table- that difference between actual and estimates in the total state expenditure is not much high, in the all studied period it is under 10 percent with the exception of 2010-11 and 2011-12. In RWS expenditure at state level difference between actual and estimate is very high. In the year 2007-08 there was about 35 percent over spending, and during 2014-15 to 2016-17 data is showing an under spending between 15 to 29 percent. Our analysis found a lot of under spending of funds in the RWS expenditure in the last three years from 2014-15 to 2016-17. Especially in 2016-17, we found an under spending of up to 29 per cent. This implies that the in the last three years state‘s rising allocation to RWS has not been matched by the actual expenditure, which has always lagged far behind the budget estimates. Overall, in the last three years that we have figures for, 2014-15 to 2016-17, on an average 23 per cent of the funds allocated for the sectors have not been spent. On an average during 2001-02 to 2016-17 variance (not taking – sign, under spending and over spending included) of total state budget is 5.5 percent, social services 6.7 percent, RWS is 17.6 percent and SC/ST RWS 17 percent. Mere allocation is not enough unless there is proper utilization of the funds. In SC/ST RWS expenditure under spending is much higher than state RWS expenditure, as we can see that in the last three years between 2014-15 to 2016-17 average under spending in total RWS is 23 percent but for SC/ST RWS it is about 32 percent, and in the 2016-17 under spending of total RWS is 29 percent but for SC/ST RWS it is much higher by 42 percent. During 2001-02 to 2004-05 average under spending in total RWS is 11 percent but for SC/ST RWS it is about 21 percent, and in the 2004-15 under spending of total RWS is just 2 percent but for SC/ST RWS it is much 2008-09 on an average there is a 32 percent overspending in total RWS but in SC/ST RWS it is just 17 percent. It means that whenever there would be an under spending it would be in greater extent in the case of SC/ST, this vulnerable class would be the greater victim of fund cutting, but whenever there would be overspending it will go to other classes of society, this increased amount would not be reflected in SCs and STs expenditure. The analysis shows that variance of actual expenditure to the budgeted amount in total state expenditure is small, but when we go deep into rural water supply expenditure variance is increasing. The state has thus maintained a good record with reference to variance in total state expenditure over the years but variance is very high in sub sectors, The table above provides evidence that the variance of actual from the budgeted is more or less acceptable in state expenditure and social services expenditure, but it spills beyond permissible limits in the case of total RWS expenditure and SC/ST RWS expenditure. Study indicates that whenever the lesser amount is being spent, first it is the poor and voiceless (SCs and STs) who gets affected and second, the sector (rural) that attracts lower attention from media suffers. A greater degree of variations in budget estimates and actual expenditure is not only a cause for concern generally but is also of particular worry for the neglected sector of rural water supply and vulnerable class SC and ST.

The analysis of expenditure made on SC and ST paints a dismal picture of the situation. While SC and ST together constitute about 36.7 percent of the total population of MP, only 26 percent of water supply and sanitation and 25 percent of water supply budget was spent on these vulnerable communities. The ST as a social group have attracted very little expenditure as the expenditure made on them stands at a measly 13 percent of water supply and sanitation and 12 percent of water supply budget, while they constitute almost 21 percent of total state population. On an average during 2001-02 to 2017-18, as regards expenditure on two categories within water supply and sanitation, SC is getting 53 percent and ST is getting just 47 percent. In total SC and ST population of MP, SC share is 43 percent and ST share is 57 percent. While the share of ST population is 57 percent in total SC/ST population of MP but this vulnerable section of the society is

On an average during 2001-02 to 2017-18 in water supply expenditure SC share is 53 percent and ST share is 47 percent. Like water supply and sanitation, STs are not getting their share in water supply expenditure according to their population share of 57 percent; they are getting just 47 percent share of water supply expenditure. According to census of India 2011, 73 percent of SCs and 93 percent of STs are living in the rural areas of MP. In MP they constitute about 43 percent of the rural population, while they are attracting only 34 percent of rural water supply budget. Here again it is evident that the government has discriminated against the STs in so far as the investments in rural water supply is concerned. Share of rural water supply expenditure in total water supply expenditure of SC/ST is coming down. Share of SC/ST expenditure in total state‘s rural water supply expenditure is coming down from 2013-14 and reached at zero in 2017-18. It means that during last 5 years government has reduced the SC and ST expenditure in rural water supply and in 2017-18 government has stopped investing for SCs and STs. SC/ST per capita expenditure in water supply and sanitation, water supply and rural water supply is lower than state per capita expenditure of water supply and sanitation, water supply and rural water supply; government is neglecting SCs and STs and not bother for making more expenditure on them and reducing the expenditure in comparison with resourceful class. The analysis provides evidence that the variance of actual from the budgeted is more or less acceptable in state expenditure and social services expenditure, but it spills beyond permissible limits in the case of total rural water supply expenditure and SC/ST rural water supply expenditure. The under spending is in greater extent in the case of SC/ST, this vulnerable class is the greater victim of fund cutting, but whenever there is an overspending it goes to the other classes of society, the increased amount is not reflected in SCs and STs expenditure.

Census of India 2001, Projected Total Population by sex as on March-2001-2026 India, States and Union Territories, http://censusindia.gov.in/Census_Data_2001/Projected_Population/Projected_Population.pdf (Accessed July 23, 2017). Census of India 2011, http://www.censusindia.gov.in/2011census/H Centre for Budget and Governance Accountability and National Campaign on Dalit Human Rights (2011), Implementation of the Scheduled Caste Sub Plan & Tribal Sub Plan in the Union and State Budgets of India, A Study Report, Study Supported by: United Nations Development Programme (UNDP), http://www.cbgaindia.org/study-report/implementation-of-scp-and-tsp-in-union-and-state-budgets/, (Accessed July 28, 2017). Madhya Pradesh State Budget, Volume 1 and Volume 3, 2001-02 to 2017-18, http://www.finance.mp.gov.in/index.htm (Accessed May 14, 2017). Saifullah Khan and Shobha Jain (2017), Public Expenditure on Rural Water Supply Sector in Madhya Pradesh – Recent Trends, International Journal of Recent Scientific Research Vol. 8, Issue, 9, pp. 20046-20051, September, 2017, ISSN: 0976-3031 Twelfth Five Year Plan, (2012–2017), Social Sectors, Volume III, Planning Commission, Government of India, http://planningcommission.gov.in/plans/planrel/fiveyr/welcome.html, (Accessed July 20, 2017).

SSL Jain PG College, Vidisha, MP, India