United Nations Public Service Awards Case Studies

Poverty remains one of the greatest problems facing the humanity. The response of the policy makers and implementer has been always to explore for ways which help the poorest of poor to cross the poverty line and help him live a decent standard of living.

There are various government and non government agencies which are sincerely working through different means to meet the challenges in their respective domain and making efforts for alleviating poverty. A large number of supposedly homogeneous BPL families in the government list ensured that unless State takes a strong affirmative action for these poorest, they may not have access to any state support while an elite group or its supporters may corner all the benefits. Hence, the greatest challenge in the rural development may not remain of funds only but of better targeting of the most needy and then offer a customized solution to their problems.

Till now all across the country anti-poverty drives have mostly been a faceless number achievement exercise for policy makers. It is well recognized that complex social structure in rural areas, at times, degenerates into a system of exclusion leading to social boycott of certain sections because of caste, class and social tensions and prejudices.

Moreover, there is also a shift in government’s approach towards development. Increasingly key programmes are being funded by the union Government and executed by the state governments. In a focused bid to tackle poverty and its various manifestation the union government has launched seven flagships programmes, namely, Sarva Shiksha Abhiyan, Mid day meal scheme, Drinking water mission, Total Sanitation Campaign, National rural health Mission, Integrated Child development services and National Rural employment guarantee scheme. The total fund allocation in year 2006-7 for these seven programmes alone is INR 468.48 billion.

Hence, now the problem is not so much of fund but of a concentrated effort to identify the neediest and then supporting them through various government schemes being implemented by different government agencies so that the poorest are supported out of the vicious cycle of poverty.

For rural poor, a large number of Schemes are implemented by State and Central Governments all over the Country. Huge financial resources to the tune of INR 9.55 billion (US $ 212.21 Million) are spent every year alone in Gujarat for poverty alleviation by Rural Development Department alone. However the experience in last few years have shown that the biggest challenge in many cases is of percolating beyond the 'Creamy Layer'. Hence, the biggest challenge in poverty alleviation is to devise methods for convergence of the benefits of Government Schemes and making them reach to the poorest of the poor.

Hence, now the problem is not so much of fund but of a concentrated effort to identify the neediest and then supporting them through various government schemes implemented by different government agencies so that the poorest are supported out of the vicious cycle of poverty.

What is the initiative about? (the solution)
The new system introduced by this initiative has provided a ‘face’ to the poor, since distribution of targets from the district level onwards was done by the name and not by numbers. The census covered 18,056 inhabited villages and a population of 35 Million persons (or 6.8 Million families) covering every rural household. The survey was conducted through a 20,000 strong work force involving Primary Teachers, Village Revenue Officers, Village Development Officials, Mid-day-Meals Workers, and NGOs etc. The survey was covered on a single scannable form which had 13 parameters. The major parameters were land holding, type of house, food security, sanitation, literacy status, child labour, indebtedness, seasonal migration etc. which have been major concerns in addressing the problem of poverty. A marking system was devised on a scale of 0 to 4 in each of the parameters. For example, a family which was houseless would get zero score while a family having an urban type of house would get 4 score. Similarly, family which got less than one square meal a day would get zero score, while a family getting enough food through out the year will get four marks. In other words, a continuum of score was arranged in respect of each of the 13 parameters. The surveying officials had just to tick in the relevant box to record the score. Adopting these methodologies 6.8 Million forms were filled in the entire State of Gujarat covering each and every rural household. Special software was developed through National Informatics Centre (NIC) to facilitate scanned forms to get converted into relevant data base. Creation of this software in itself was a major challenge. However, during the period from July 2004 to September 2004, 6.8 Million Forms were scanned and digitized. After scanning of forms, entire exercise for cross-checking of data conversion was done by randomly selecting 10% of the filled up forms. This exercise was done to ensure credibility of the new BPL list. The whole process of targeting has become transparent as the database is web based and anybody including NGO, media can access the information and can raise questions. This process of selection of beneficiaries by the field level functionaries becomes totally open and transparent and comes in public domain. Discretion of field level functionaries gets regulated and it also insulates the decision making authorities from local vested interests and political and other interference. After the implementation of the web based new BPL list, a reversal of social pyramid is seen i.e. putting the poorest at the top. Families have been arranged according to the degree of their poverty- the poorest households top the list and they are followed by the relatively less poor families. For decision makers, this means that all the efforts can be directed towards the poorest tier. The result, convergence of efforts from different quarters of the state machinery can liberate the most vulnerable sections from the cycle of poverty. The new system is objective, transparent and fair.

Who proposed the solution, who implemented it and who were the stakeholders?
The leitmotif of BPL list in Gujarat, which is now simple, practical and sensitive to vulnerability, was proposed by the nominee Mr. Vipul Mittra who presently works as Development Commissioner in Government of Gujarat. This project of web based data bank and software for which he is getting the nominated was steered monitored and implemented by him. Because the net is quick, accessible and cheap, it is an excellent platform for sharing the vast new database. He proposed this technological intervention which gave a face to the poor instead of mere numbers. The idea of specific software, query module and web based placement of the databank was propagated by him and steered through for Government approval. He made several presentation of this website to various field functionaries, other Departments, and Committee of Secretaries of the State Cabinet. A presentation was also made in the meeting all the Secretaries of Rural Development. Mr. Vipul Mittra pushed this project to a logical conclusion and ensured the implementation of the same by various departments of the State Government. This project was also nominated for the prestigious Magsaysay Award 2007, by Professor Y.K. Alagh, a renowned economist, and ex minister, GOI and present Chairman of Institute of Rural Management Anand. After the implementation of the web based new BPL list, a reversal of social pyramid is seen i.e. putting the poorest at the top. Families have been arranged according to the degree of their poverty- the poorest households top the list and they are followed by the relatively less poor families. For decision makers, this means that all the efforts can be directed towards the poorest tier. The result, convergence of efforts from different quarters of the state machinery can liberate the most vulnerable sections from the cycle of poverty. Even between the poor there are hierarchies. That is why choices are to be made while identifying beneficiaries, whether it is for employment, housing, sanitation or other social sector schemes.

Describe how and when the initiative was implemented by answering these questions
a. What were the strategies used to implement the initiative? In no more than 500 words, provide a summary of the main objectives and strategies of the initiative, how they were established and by whom.
To implement this initiative, various strategies were adopted after objectives were set up by the Rural Development Department team headed by Mr. Vipul Mittra. The objectives were to identify the poorest from the village. The wealth ranking was to be done in a concerted manner. The steerages include changing the definition of below Poverty Line. The earlier definition of BPL was based on per capita consumption of expenditure of INR (Indian Rupee) 254 per month. The new list is based on score obtained in the survey as per 16 Socio-Economic Indicators. A massive survey was carried out for the entire rural households covering 6.8 Million families with the help of 18800 enumerators. The survey was on single base scanable form wherein surveyor had to simply tick the relevant score. To prevent any errors which normally occur during manual data entry, scanning of the form was carried out. Over 1.3 Million forms were re-verified to ensure correctness of the information. A ‘query module’ was introduced in the database which could pick up village-wise names on the desired indicator. Now iIt was made possible to get village-wise name-wise information of the individual beneficiaries. For example if some agency wants to know the names of persons who are houseless (parameter number 2), illiterate (parameter number 7) and who migrate (parameter number 12) for a particular village, it is possible to get specific information by clicking the parameters number, 2,7, and 12 and then submitting the same in the MIS. This entire software and information was displayed on the website www.ruraldev.gujarat.in. it can also be accessed through the Gujarat State Wide Area Network website www.gswan.gov.in

b. What were the key development and implementation steps and the chronology? No more than 500 words
For the first time in the State, Below Poverty Line was termed as a Socio Economic Survey to make people take this exercise as a random one. This step actually made the powerful people relaxed as it appeared to them that the earlier list is sacrosanct. An announcement was made in local media that this survey will give a real picture of the rural Gujarat. This had a positive impact and ensured that no manipulation is done during the actual survey work. The Commissionerate then divided its work force to take charge of specified districts, with the Commissioner having the overall charge of the entire exercise. After giving ample training to all of its staffs at the Commissionerate and District level, The Taluka level functionaries were then trained for this massive exercise. Then a door-to-door comprehensive census was conducted in the year 2003 in all the villages of Gujarat in order to revise the 'Below Poverty Line (BPL)' List. This census covered all the 18,056 inhabited villages and a population of 35 Million persons (or 6.8 Million families) covering every rural household. The survey was conducted through a 20,000 strong work force involving Primary Teachers, Village Revenue Officers, Village Development Officials, Mid-day-Meal Workers, and NGOs from each districts etc. This survey was covered on a single scannable form which had 13 parameters. The major parameters were land holding, type of house, food security, sanitation, literacy status, child labour, indebtedness, seasonal migration etc. which have been major concerns in addressing the problem of poverty. These scanable forms were used to prevent errors which occur during manual data entry. Scanning also saved the efforts, cost and time. The surveyors were required only to tick the score as no descriptive entry was allowed. A marking system was devised on a scale of 0 to 4 in each of the parameters. For example, a family which was houseless would get zero score while a family having an urban type of house would get 4 score. Similarly, family which got less than one square meal a day would get zero score, while a family getting enough food through out the year will get four marks. In other words, a continuum of score was arranged in respect of each of the 13 parameters. The surveying officials had just to tick in the relevant box to record the score. Adopting these methodologies 6.8 Million forms were filled in the entire State of Gujarat covering each and every rural household. Special software was developed through National Informatics Centre (NIC) to facilitate scanned forms to get converted into relevant data base. Creation of this software in itself was a major challenge. However, during the period from July 2004 to September 2004, 6.8 Million Forms were scanned and digitized. After scanning of forms, entire exercise for cross-checking of data conversion was done by randomly selecting 10% of the filled up forms. This exercise was done to ensure credibility of the new BPL list. A query module was introduced in the software to make it possible to draw information of individual beneficiary based on any of the 16 parameters

c. What were the main obstacles encountered? How were they overcome? No more than 500 words
The difference of opinions is actually a welcome situation as you get the best after the discussions. Before starting the socio-economic survey, there has been complaint regarding wrong entitlements to the people. Those who don’t deserve the Below Poverty Line (BPL) card have got it while poor landless agricultural workers still look for it. The biggest challenge before the government was to identify the BPL people through a mutually acceptable process. So before the start of the survey, it was to be realized by the team that it is the people with muscle power who have become BPL members and not the poor who deserved that. To counter this, the survey was conducted in a single phase to make these powerful locally based people off guard. During the survey, the local based leadership who had connived with the local officials to garner the government benefits was the most vocal opponent of the survey. These leaders were also included in the process and the whole list was ratified by the village in open Gram Sabha. Then these forms were kept under seal at the block office and subsequently for data entry to create the database. The whole process was ensured to be transparent in its approach of doing the survey, and then presenting the findings in front of the Gram Sabha after the list was prepared. This list could be challenged and is dynamic in nature after the opinion of Honorable Supreme Court. The next phase of entering the data was made easy due to scanable forms so the chances of errors were minimized in that stage. The involvement of civil society, NGOs also ensured and gave credibility of Government’s efforts as they had always been vocal on Government’s process of identifying the BPL households. All the process of preparation of survey format, identifying the families and rechecking or verifying of 10% data was undertaken after taking the NGOs in confidence.

d. What resources were used for the initiative and what were its key benefits? In no more than 500 words, specify what were the financial, technical and human resources’ costs associated with this initiative. Describe how resources were mobilized
To begin with, in order to revise the 'Below Poverty Line (BPL)' List a door-to-door comprehensive census was conducted in the year 2003 in all the villages of Gujarat. The census covered 18,056 inhabited villages and a population of 35 Million persons (or 6.8 Million families) covering every rural household. The finance for the whole endeavor was provisioned through Government funds earmarked as management expenses for this in the current year budget. This survey was covered on a single scannable form which had 13 parameters. The major parameters were land holding, type of house, food security, sanitation, literacy status, child labour, indebtedness, seasonal migration etc. which have been major concerns in addressing the problem of poverty. These scanable forms were used to prevent errors which occur during manual data entry. Scanning also saved the efforts, cost and time. The surveyors were required only to tick the score as no descriptive entry was allowed. Special software was developed through National Informatics Centre (NIC) to facilitate scanned forms to get converted into relevant data base. Creation of this software in itself was a major challenge. However, during the period from July 2004 to September 2004, 6.8 Million Forms were scanned and digitized. After scanning of forms, entire exercise for cross-checking of data conversion was done by randomly selecting 10% of the filled up forms. This exercise was done to ensure credibility of the new BPL list. A query module was introduced in the software to make it possible to draw information of individual beneficiary based on any of the 16 parameters. The census covered 18,056 inhabited villages and a population of 35 Million persons (or 6.8 Million families) covering every rural household. To accomplish this gigantic task, a 20,000 strong work force involving officials from Rural Development department, Primary Teachers, Village Revenue Officers, Village Development Officials, Mid-day-Meals Workers, NGOs etc. For entering the data and scanning of the forms again computer literate youths numbering around 2000 were deployed. During the period from July 2004 to September 2004, 6.8 Million Forms were scanned and digitized. To manage this huge database, special software was developed through National Informatics Centre (NIC) to facilitate scanned forms to get converted into relevant data base. Creation of this software in itself was a major challenge. After scanning of forms, entire exercise for cross-checking of data conversion was done by randomly selecting 10% of the filled up forms. This exercise was done to ensure credibility of the new BPL list. The workforce was mobilized after various consultations and meticulous planning with various line departments such as Education Department, Revenue Department etc.

Is the initiative sustainable and transferable?
This project has been adopted by the State Government. Most of the Departments of Government are using this databank for the selection of the beneficiaries. It will have a long term impact on the level of poverty in Gujarat since selection of the beneficiaries is the most crucial factor while distributing the Government’s assistance at the grass root level. This model of Rural Development, Gujarat has been appreciated at the State as well as National level and various States have tried to replicate the same. Various NGOs are adopting similar approaches while preparing their database and MIS as most of the schemes are targeted for the households belonging to Below Poverty Line. There is also a provision of updating this databank at regular interval to include those households which may become BPL households due to shocks such as death of earning member, natural calamity etc. As the whole list is ratified at the village level, the selection of the beneficiaries have been very smooth as their remains no ambiguity. This system is sustainable due to the institutional and regulatory arrangement such as District Development Offices at the District level to check and authenticate the validity of the data and simultaneously making the provision of IT agency like the NIC for handling the data. The whole approach is integrated with each other and can be rectified after any complaint is received from the village level, as each village has Talatis who are specially assigned to make representations for the village from the village Panchayats.

What are the impact of your initiative and the lessons learned?
The approach in identifying real poor from the rural areas was a gigantic task and the Government had learnt a lot from this. These are also reflected in the outcome of preparing a new list and then digitizing it. There are provisions for appeal and revision, inclusion and exclusion in the new BPL list. Therefore, this list shall be a dynamic list open to revision and admitting genuine claims unlike the old list, which once decided, was frozen for five years. The software also allows 'Query Based' outputs from the new BPL list. It is now possible to generate information for each of the 18,056 inhabited villages and its residents on any permutation and combination of parameters covered under the survey. For example, it is now possible to have a list of families facing problems of 'children not going to school' (illiteracy) and 'having less than two Square meals-a-day' (food security) in every village of the state within a couple of minutes. Similarly, we have access to complete information about the 'houseless' and the indebted poor, or the list of 'seasonal migrants' amongst the 'Tribal’ through out the state. The possible number of permutations and combinations and information to be generated is immense. Hence, the information is dynamic and user friendly and can be obtained in any combination of the 13 parameters. This entire information is also easily available on the Rural Development Department's website: www.ruraldev.gujarat.gov.in This is indeed been a massive exercise spanning over last three years involving a team of over 20,000 of government officials and NGOs. The process of adoption of the new list has involved a massive exercise. It has become very important to sensitize about this concept to the government agencies and others involved in the social development sector so as to facilitate easy acceptability of the list. This has involved a lot of effort in organizing a large number of meetings, training sessions, satellite and video based conferencing based communication techniques and media. It has been a massive exercise and the impact of the same is being felt through out the state. In line with green revolution, white revolution and information revolution, this attempt may be termed as an entitlement revolution to radically change the life of the poorest and to realize the dreams of our father of the nation. These lessons range from general to more specific situations that is, from augmenting agricultural production, eliminating seasonal hunger, to provide for food security during and after natural calamities. Together these vast and varied lessons provide a basis for vital policy recommendations for food security. The quantum of distribution of government benefits should be targeted in a concerted effort by all ministries and departments rather than individual targeting by each department. A monitoring cell was also proposed by Mr Vipul Mittra for monitoring the quantum of benefit provided to each household. The conceptualization and formation of this BPL monitoring cell was also initiated during his tenure and has been sent to the Finance Department of Gujarat for approval. These lessons will greatly help the civil servants while planning and budgeting their annual plans. The interests of public institutions, Organizations, Citizens, NGOs, Private sector has also increased in decision making due to the transparency of the system as now the information is not sacrosanct but is available on public domain fro analysis and correction.


Institution Name:		Commissionerate of Rural Development
Institution Type:		Government Agency
Contact Person:		Vipul Mittra
Title:		Commissioner
Telephone/ Fax:		+917923254068
Institution's / Project's Website:		+917923254114
E-mail:		vmittra@gmail.com
Address:		Block-16, 2nd Floor, Dr Jivraj Mehta Bhawan, Gandhinagar
Postal Code:		382010
City:		Gandhinagar
State/Province:		Gujarat
Country:		India

The Problem

Solution and Key Benefits

Actors and Stakeholders

(a) Strategies

(b) Implementation

(c) Overcoming Obstacles

(d) Use of Resources

Sustainability and Transferability

Lessons Learned

Contact Information