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The PAISA Survey
Yamini Aiyar Accountability Initiative Centre for Policy Research
Unpacking the total budget
Tracking school level fund flow
Analyzing plans & fund distribution
Understanding school level expenditure & governance
The PAISA Survey
Unpacking the Education Budget 2013-14 6 States (GOI and States)
85%
5%
5% 4%
Teachers
School
Children
Management
Minimal investments in quality and School grants
Investments in Schools: Nalanda, Bihar 2012-13
Civil Works 2%
Teachers
82% Entitlements
13%
School Grants
1% Misc. 1%
Average Investment Per School : ₹11,10,609
Investments in Schools: Udaipur 2012-13
Teachers
94%
Entitlements 2%
School Grants
1%
Misc. 0%
Civil works
2%
Average Investment Per School :
₹ 915413.6
SSA funds significant contributor in poorer states
62% 52%
70% 63%
88% 87%
38% 48%
30% 37%
12% 13%
0%10%20%30%40%50%60%70%80%90%
100%
2009-10 2012-13 2009-10 2012-13 2009-10 2012-13
Bihar Rajasthan Himachal Pradesh
Proportion of EE expenditure from SSA Budget
Proportion of EE expenditure from State Budget (excluding MDM)
How does this money reach schools? Who takes decisions?
Rule bound planning Schools and districts rarely plan
“We got money for a boundary wall. But the real problem in our school is poor quality drinking water” (Bihar HM)
Who makes a school plan? 30% schools in Nalanda; 20% in Udaipur; 0 in Jaipur; 50% in Sagar (planning Vs DISE) District plan process are rarely taken seriously. Poor quality data/ lack of training a serious impediment
Time Use data (Block Education Officials)
• Average of 6 -8 hours of frenzied work
• 20-25 visitors per day
• “Mission Mode” work style – responding to district demands and state orders
• Too much monitoring , too many formats – so officials monitor schools and collect information “over the phone”
• In sum, block officers function primarily as data collectors and post officers!
• Critical activities – teaching, planning , school support is low priority
District’s rarely get the money they ask for
0%
20%
40%
60%
80%
100%
Approved allocationsas a proportion of
proposed funds
Released as aproportion of
approved allocations
Approved allocationsas a proportion of
proposed funds
Released as aproportion of
approved allocations
2011-12 2012-13
97%
55% 59%
45%
79% 88% 91%
72%
Nalanda Kangra
District Allocations Don’t Reflect School Needs Analysis of class room money distribution across districts 2012-13
.2.4
.6.8
1
allo
catio
nona
lloca
tion
0 .2 .4 .6 .8expalloc1112
Purnea
Nalanda
Expenditure performance a key factor. But a district that spends, rarely gets money…
Ch
ang
e in
all
oca
tio
n 2
01
1-1
2 &
20
12
-13
Purnea ACR: 2012-2013
25% 6 months/ more
to withdraw money
57% More than 1 year
to complete work, once started
Nalanda ACR: 2012-2013
School level progress is slow…..
“ I went to the district office 7 times to follow up on this classroom……after it was sanctioned, it took nearly 4 months for the junior engineer to arrive and approve the plans. In total, it took more than a year and a half for this classroom to be built” ~ HM interviews, Nalanda (2013)
30% 6 months/ more to withdraw money
38% More than 1 year
to complete work, once started
Norms allow limited flexibility in allocation even for these small monies
NPS Kharjama
UPS Maghra
In Summary Findings from the PAISA survey
• Current planning and budgeting model is centralized and norm driven
SMC planning process is largely a “signatory” exercise with no real participation
District planning a mechanical exercise
Schools/ SMC have expenditure control over only school grants that are a miniscule portion of the budget. That too is ‘tied’
• The result: planning, budgeting and expenditure do not reflect realities on the ground. Little scope for “decentralized planning” a key goal of the Right to Education (RTE)
When Does this Money Reach Schools?
Gap between Allocations, Release and Expenditure (2011-12)
0
2,000
4,000
6,000
8,000
10,000
12,000
14,000
16,000
18,000
Himachal Pradesh Rajasthan Madhya Pradesh Bihar
Total EE allocations Total EE releases Total EE expenditures
Delays in timing of release
54%
20%
41%
2%
13%
19%
27%
21%
0%
10%
20%
30%
40%
50%
60%
2009-10 2012-13 2009-10 2012-13 2009-10 2012-13 2009-10 2012-13
Andhra Pradesh Bihar Rajasthan Madhya Pradesh
Proportion released in Q4
Money comes in half way through the financial year (PAISA National Report 2012)
Gap between district releases and receipts in Schools: Medak, Andhra Pradesh 12-13
19
0%
20%
40%
60%
80%
100%
120%
TLM SDG SMG
District Releases (MER)
Gap between district releases and receipts in Schools: Medak, Andhra Pradesh 12-13
0
20
40
60
80
100
120
TLM SDG SMG
20
School Receipts (PAISA survey)
\\
Gap between district releases and receipts in Schools: Nalanda 12-13
0%
20%
40%
60%
80%
100%
TLM SDG SMG
District Releases (MER)
Gap between district releases and receipts in Schools: Nalanda 12-13
School Receipts
0%
20%
40%
60%
80%
100%
TLM SDG SMG
Implications of late arrival Rule Bound Expenditure……
• Schools use their own monies to meet essential supplies and ‘adjust’ the books accordingly
• Expenditures are delayed (eg. 1.5 lakhs SMG money in HP blocks)
• Rule based expenditure (Building less school in Purnea)
• Whitewashing a popular annual activity – 67% schools whitewashed their walls in 2012-13
And so, even BAU is hard to achieve
21,360 24,372
27,552
45,676
61,734
69,937
45,937
15,751 19,332
21,293
31,942
37,808
44,259
-
10,000
20,000
30,000
40,000
50,000
60,000
70,000
80,000
2007-08 2008-09 2009-10 2010-11 2011-12 2012-13 2013-14
Allocations (AWP&B) (in crores) Expenditures (in crores)
Way forward: Building a decentralized, outcomes focused delivery system
Realigning plans and budgets: o At minimum provide untied block grants to schools rather than
following the “tied grant” approach
o Provide budget envelope to districts before plans are made
o Set broad targets, allow district flexibility to determine their own district specific learning goals
Re-organize workflow and enhance training at the block to enable local officials to do the job they’ve been hired for
Training for SMCs: spend community mobilisations money
Above all regular, reliable tracking of fund flows and plan processes