1. GoI-UN Program on Convergence | Sep-10
JAN 2010
ANALYSIS OF MPLAD IN
GAYA MP CONSTITUENCY

2. Table of Contents
INTRODUCTION___________________________________________________________________ 3
GOI-UN JOINT PROGRAM ON CONVERGENCE _________________________________________ 3
Box 2 _______________________________________________________________________ 3
Box 1 _______________________________________________________________________ 3
TRACING THE HISTORY OF INSTITUTIONALIZING GENDER__________________________________ 4
ALL ABOUT THE STUDY _____________________________________________________________ 5
OBJECTIVE OF THE STUDY___________________________________________________________ 5
METHODOLOGY __________________________________________________________________ 5
THE PROGRAM – MPLAD ___________________________________________________________ 6
BACKGROUND OF SCHEME________________________________________________________ 6
PROVISIONS UNDER THE SCHEME __________________________________________________ 6
WORKS PROHIBITED UNDER MPLAD ________________________________________________ 7
GENDER ISSUE IN GUIDELINE ________________________________________________________ 8
OVERVIEW OF GAYA DISTRICT _______________________________________________________ 8
MAJOR FINDINGS _________________________________________________________________ 9
FUND DISTRIBUTION UNDER THE SCHEME __________________________________________ 10
KEY RECOMMENDATIONS__________________________________________________________ 11
Works Cited_____________________________________________________________________ 12

3. INTRODUCTION
This report presents the findings of an analysis of MPLAD interventions from the
point of view of gender equality. In spite of the limited time span, the Given the
limitations, the findings presented here are by no means conclusive. Instead, they
may be treated as ‘pointers’, as unheard voices that need to be heard—and acted
upon. The hopes that the study will usher in a process of enquiry in terms of
integrating gender: in the Program Implementation.
GOI-UN JOINT PROGRAM ON CONVERGENCE
Joint Collaborative Program between
Union Planning Commission, Govt. of
Bihar and UN system in India to help
5 selected districts to accelerate
actions to meet MDGs by fostering
convergence, improved Utilization of
resources from Government Programs
and other sources and UN agencies
delivering as one in support of
Government at state and district
level. This are achieved through
formation of Technical Support Group
to assist District Planning Committee
(DPC). The core functional areas of
the group are to strewnghten the
system and build the capacity of all
stakeholders and create evidence
based knowledge. Evidence based
System Strengthening and pro-poor
and pro-deprived Innovative
approaches / models to achieve
desired programme outcomes. This
program is meant to support State
and District to achieve key
monitoring indicators of 11th five
year plan and improved service
delivery in National Flagship Program
through System Strengthening,
Capacity Building, Knowledge
Management, Decentralized Planning,
Monitoring and Evaluation.
Box 2
Key Monitoring Indicators – 11th
Plan
I. GDP growth rate
II. Agricultural growth rate
III. New work opportunities
IV. Poverty ratio
V. Dropout rate in elementary schools
VI. Literacy rate
VII. Gender gap in literacy rate
VIII. Infant mortality rate (IMR)
IX. Maternal mortality ratio (MMR)
X. Total Fertility Rate (TFR)
XI. Child malnutrition
XII. Anaemia among women and girls
XIII. Sex-ratio
Box 1
National Flagship Program (NFPs)
I. National Rural Health Mission
II. Integrated Child Development Services
III. Sarva Shiksha Abhiyan
IV. Rastriya Krishi Vikas Yojna (RKVY)
V. Accelerated Rural Water Supply Program
VI. Total Sanitation Campaign
VII. Backward region grant fund
VIII. National Rural Employment Guarantee
Scheme
IX. Jawaharlal Nehru Urban renewal Mission

4. TRACING THE HISTORY OF INSTITUTIONALIZING GENDER
The planning Commission of India has always focused on women’s issues as per the
perceptions of their members on women’s status within the economy. The First
Five Year Plan (1951-1956) set up Central Social Welfare Board in 1953 to promote
welfare work through voluntary organisations, charitable trusts and philanthropic
agencies. The Second Five Year Plan (1956-1960) supported development of Mahila
mandals for grass roots work among women. The Third, Fourth and Interim Plans
(1961-74) made provision for women’s education, pre-natal and child health
services, supplementary feeding for children, nursing and expectant mothers. The
Fifth Plan (1974-1978) marked a major shift in the approach towards women, from
welfare to development. The Sixth Plan (1980-85) accepted women’s development
as a separate economic agenda. The Multidisciplinary approach with three- pronged
thrust on health, education and employment. The Seventh Plan (1985-1990)
declared as its OBJECTIVE TO BRING WOMEN INTO THE MAINSTREAM OF NATIONAL
DEVELOPMENT. The Eighth Plan (1992-1997) projected paradigm shift, from
development to empowerment and promised to ensure flow of benefits to women
in the core sectors of education, health and employment. Outlay for women rose
from 4 crores in the First plan to Rs. 2000 crores in the 8th Plan. The Ninth Plan
(1997-2002) stated that Empowerment of women was its strategic objective. It
accepted the concept of Women’s Component Plan to assure at least 30% of
funds/benefits from all development sectors flow to women. The Tenth Five Year
Plan (2002-2007) has suggested specific Strategies, policies and programmes for
Empowerment of women. (Gender Budgeting Handbook forGovt of India Ministries
and Departments , 2007)
The Approach Paper to the Eleventh Plan states that "gender equity requires
adequate provisions to be made in policies and schemes across Ministries and
Departments. It also entails strict adherence to Gender Budgeting across the
board." For the Eleventh Five Year Plan, for the first time there was a Sub-Group
on Gender Budgeting, as part of the Working Group on Empowerment of Women. In
addition to providing recommendations on Gender Budgeting for various sectoral
ministries, the Sub-group recommended the setting up of a Gender Budgeting
bureau in the MWCD, establishment of Regional Resource and Training Centres for
Gender Budgeting (RRTCGB) as well as preparation of Gender Budgeting training
manuals. The report of the sub-group was incorporated as a part of the Working
Group on Women and submitted to the Planning Commission. The importance of
Gender Budgeting has been stressed time and again in different forums. To provide
further impetus, the Finance Minister, in his budget for 2004-05, mandated the
setting up of gender budget cells in all Ministries and Departments and highlighted
the need for budget data to be presented in a manner that brought out the gender
sensitivity of the budgetary allocations. This was followed by a more emphatic
commitment in the budget speech of 2005-06, where budgetary allocations under
10 demands for grants, estimated at a total of Rs. 14,379 crore, were shown in a
separate gender budget statement. The 2006-07 Budget Speech revealed an
estimated allocation of Rs.28,737 cr. for benefit of women under 24 demands for
grants in 18 Ministries and Departments. This statement was extended in the
budget of 2007-08, to include 33 demands for grants of 27 ministries/departments.

5. These gender budget statements covered allocations that were 100% targeted at
women and girls and those where at least 30% of the funds were targeted at
women and girls. The suggest strategies under 11th Five year plan are as follows
measurement of development has to go beyond achievement of GDP growth to
indicators of distributive justice and their monitoring. Women headed households
have to be specifically targeted, identifying added disadvantages in the rural and
urban locations with reference to different parameters of deprivation. Formulation
of Gender Development Indicators to measure human Development and their use as
a tool for monitoring development needs to be hastened. Out of 13 key monitoring
indicators 5 are directly related to women. These are Gender gap in literacy rate,
maternal mortality ratio (MMR), Total Fertility Rate (TFR), Anaemia among women
and girls and Sex-ratio.
ALL ABOUT THE STUDY
This study was conducted under the guidance of Sri Sanjay Kumar Singh, IAS,
District Magistrate of Gaya to see how MPLAD scheme is being translated into field
and how sensitivity it carries both at guideline and at Implementation level. This
was Joint effort of District administration and district UN team led by District
Facilitator in District.
OBJECTIVE OF THE STUDY
The main objectives of the study are:
♀ To attempt as far as possible a gender analysis of MPLAD scheme from 2004-05 to
2008-09 in Gaya MP Constituency to track flow of resources to women.
♀ To offer some policy suggestions following largely from the mismatch between
what was envisaged by Planning commission and Ministry of Women and Child
development, given the mechanisms and processes put in place for assessing
gender needs and priorities, and what has been the outcome.
♀ Integrate gender issues into planning, monitoring, and evaluations to promote and
support activities, which contribute to gender equality goals
METHODOLOGY
The analysis of the MPLAD scheme was carried our using studied adopting
methodology of Data analysis and validation, qualitative research, concerns,
challenges. The study is based on the data given by competent authority of MPLAD
and guideline of Member of Parliament Local area development scheme,
Government of India. (MPLAD Guideline, 2009)
Several documents of Government of India, Ministry of Women and Child and UN
agencies were referred for this analysis to give a natural view. The scheme details
were categorized broadly into eight categories to see how the schemes were
selected and how much resource is allocated to each category. And whether the

6. schemes which were selected during last 5 financial years are sensitive to women’s
need or are gender natural.
THE PROGRAM – MPLAD
The Member of Parliament Local Area Development Division is entrusted with the
responsibility of implementation of Member of Parliament Local Area Development
Scheme (MPLADS). Under the scheme, each MP has the choice to suggest to the
District Collector for, works to the tune of Rs.2 Crores per annum to be taken up in
his/her constituency. The Rajya Sabha Member of Parliament can recommend
works in one or more districts in the State from where he/she has been elected.
The Nominated Members of the Lok Sabha and Rajya Sabha may select any one or
more Districts from any one State in the Country for implementation of their
choice of work under the scheme. The Department has issued the guidelines on
Scheme Concept, implementation, and monitoring. The Department has initiated
all necessary steps to ensure that the scheme is successfully implemented in the
field. The progress of the works being implemented under the scheme is monitored
on a regular basis.
BACKGROUND OF SCHEME
The general public approach Members of Parliament (MPs) for provision of certain
basic facilities including community infrastructure in their areas. Government of
India considered the need for a mechanism to respond to such requests and
decided to have a scheme to meet the felt needs of the people.
On 23rd December 1993 Prime Minister announced in the Parliament the Members
of Parliament Local Area Development Scheme (MPLADS). Initially the MPLADS was
under the control of the Ministry of Rural Development. The Guidelines were issued
in February 1994, covering the concept, implementation and monitoring of the
Scheme. The subject relating to the MPLADS was transferred to the Ministry of
Statistics and Programme Implementation in October 1994. The Guidelines were
periodically updated in December 1994, February 1997, September 1999, 2002 and
lastly in November 2005. The objective of the scheme is to enable MPs to
recommend works of developmental nature with emphasis on the creation of
durable community assets based on the locally felt needs to be taken up in their
Constituencies. Right from inception of the Scheme, durable assets of national
priorities viz. drinking water, primary education, public health, sanitation and
roads, etc. are being created. In 1993-94, when the Scheme was launched, an
amount of Rs. 5 lakh per Member of Parliament was allotted which became Rupees
one crore per annum from 1994-95 per MP constituency. This was stepped up to Rs.
2 crore from 1998-99.
PROVISIONS UNDER THE SCHEME
All works to meet the locally felt community infrastructure and development needs
with emphasis on the creation of durable assets in the respective constituency are
permissible under MPLADS except those prohibited in Annex- II. MPs may choose
some works for creation of durable assets of national priorities namely drinking
water, education, public health, sanitation, and roads under the Scheme.

7. There is a greater need to develop areas inhabited by Scheduled Castes (SCs) and
Scheduled Tribes (STs). It is necessary that special attention is given for
infrastructural development of such areas. The MPs are to recommend every year
such works costing at least 15% of MPLADS fund for areas inhabited by Scheduled
Caste population and 7.5% for areas inhabited by Scheduled Tribe population. In
other words, permissible works costing not less than Rs. 30 lakh out of the annual
allocation of Rs. 2 crore per MP shall be recommended for areas inhabited by SC
population and Rs. 15 lakh for areas inhabited by ST population. In case, a
constituency does not have ST inhabited area, such fund may be utilized in SC
inhabited areas and vice-versa. It shall be the responsibility of the District
Authority to enforce this provision of the Guidelines.
MPLAD Scheme can be converged with the Central and State Government
schemes provided such works are eligible under MPLADS. Funds from local
bodies can also be pooled for MPLADS works. Wherever such pooling is done,
funds from other scheme sources should be used first and the MPLADS funds
should be released later, so that MPLADS fund results in completion of the
work.
The MPs concerned can recommend the use of MPLADS funds towards the State
Government share in a Centrally Sponsored Scheme being implemented in their
constituencies, provided the works under the Centrally Sponsored Scheme are
permissible under MPLADS. Public and community contribution to the works
recommended by MPs is permissible. In such cases, MPLADS funds will be limited
to the estimated amount minus the public and community contribution.
As per the provisions of the Right to Information Act, 2005 and the Rules framed
there under, all citizens have the right to information on any aspect of the MPLAD
Scheme and the works recommended/ sanctioned/ executed under it. This may
include any information on works recommended by the MPs, works sanctioned/ not
sanctioned, cost of works sanctioned, Implementing Agencies, quality of work
completed, User’s Agency etc. The District Authorities are responsible to provide
such information to the public in the manner as required under the Right to
Information Act 2005.
WORKS PROHIBITED UNDER MPLAD
 Office and residential buildings belonging to Central, and State Governments,
their Departments, Government Agencies/ Organizations and Public Sector
Undertakings.
 Office and residential buildings, and other works belonging to private,
cooperative and commercial organizations.
 All works involving commercial establishments/units.
 All maintenance works of any type.
 All renovation, and repair works except heritage and archeological monuments
and buildings with specific permission available from the Archeological Survey
of India.
 Grants and loans, contribution to any Central and State/UT Relief Funds.
 Assets to be named after any person.
 Purchase of all movable items except vehicles, earth movers, and equipments
meant for hospital, educational, sports, drinking water and sanitation purposes

8. belonging to Central, State, UT and Local Self Governments. (This will be
subject to 10% of the Capital Cost of the work for which such items are
proposed)
 Acquisition of land or any compensation for land acquired.
 Reimbursement of any type of completed or partly completed works or items.
 Assets for individual/family benefits.
 All revenue and recurring expenditure.
 Works within the places of religious worship and on land belonging to or owned
by religious faith/group.
GENDER ISSUE IN GUIDELINE
The MPLAD guideline never talks about disaggregated data collection for planning
or monitoring. There are provisions for special category (SC/ST) but gender aspect
is missing from guideline. Nowhere in the guideline is term gender or sex found.
Even the work priorities which are mentioned in the guideline are generic in nature
and it is left to the individual. Some guideline on activities should be given so that
MPs can think beyond the Roads and bridges. The guideline talks about the fund
installments to implementing agencies but it hardly say anything for women
component plan which is mandated by Ministry of Women and child, Government of
India. The selection of schemes is solely done by the MPs so they should be
informed about gender issues before making choices for a particular scheme. It is
open and only bar a few activities so wide range and issues related to gender
should be given in the guideline.
OVERVIEW OF GAYA DISTRICT
According to 2001 Census Gaya has a population of 3,473,428 which comprises of
1,792,163 males and 1,681,265 females. Of the total population of the district,
86.30 per cent reside in rural areas and remaining in urban areas. The literacy rate
of the Gaya is 50.4 percent against national average of 64.8. The sex ratio has
slightly increased from 922 (1991 census) to 938 (2001 census) but it is having
declining trend in last century. 29 percent comprise of SC population and only less
than percent is ST population. Gender gap in literacy is 26.6 points.
The district level health survey (DLHS-3, 2008) data also shows that early marriage
is 50.4 percent in Gaya district. 22 percent of respondents have Access to toilet
facility. Only 20.7 percent women have gone for Institutional delivery which is 15.2
percent in rural area.

9. The data of 2001 census and District Level Health survey (DLHS-3) clearly indicates
that inspite of concerted efforts by the Central and State Governments the
development of women particularly in the rural area is still a challenging and task
and calls for special attention and priority treatment. And there is a need to
implement the programs with gender sensitivity. The empowerment of rural
women is crucial for the development of district as well as state. Bringing women
into the mainstream of development is a major concern for all the Governments.
Therefore, the programmes for rural development should have a women's
component to ensure flow of adequate funds to this section. The constitution has
placed enormous responsibility on the District Planning Committee (DPC) to
formulate and execute various programmes of economic development and social
justice.
MAJOR FINDINGS
We have compiled the data of 5 years scheme wise from 2004-05 to 2008-09. All
the activities were then categorized viz. Connectivity Road, Connectivity Bridges,
Village roads, Community Hall, Sanitation, Drinking water, Agriculture and others.
Others mainly includes Tsunami relief Fund and some lighting activity in urban area
and Guard wall at few places.
1037 1035
1003 1001 1001 995 996
961 966
922
938
1901 1911 1921 1931 1941 1951 1961 1971 1981 1991 2001
Sex Ratio, Gaya

10. This chart clearly shows the selection of scheme sector wise. During the 5 year
period total 289 schemes were recommended by MP out of which 51 percent is for
PCC roads. If we club this with Village road (2.5%) and bridges (4.5%) the share
increases to 58 percent. Second big pie (16%) is for sanitation in this category most
of the Schemes were for drainage with PCC road or other type of Roads. Only a
few schemes were selected where exclusive drainage work was done. Next to this,
drinking water, this is 11 percent in the above pie, mostly for the ring boring and
other type of Handpumps. Out of 33 Handpumps Not even a single hand pump was
given in the name of Anganwari centers/ Health Sub centers. where in Gaya district
3334 AWCs are there. Well, this 11 percent schemes are directly contributing to
the Gender component depending on the location of these handpumps. In
community hall (9%) it is usually made in the Panchayat’s land, out of the village
where women hardly go for anything. This needs to be looked into for ideal
location so that women can use these places for their SHG meeting or other
gatherings.
Overall the number of schemes for sustainable livelihoods such as irrigation
schemes for agriculture is only 3.5% which shows the lack of informed choices.
FUND DISTRIBUTION UNDER THE SCHEME
As we went through the financial figures of Last five years we have found that
during last 5 years total 7,65,02,083/- rupees is allocated to Gaya district. Out of
this sum of 7.65 crore rupees 58% is spent on PCC Road. If we include the Village
road and Bridges this will reach to 65 percent. The sanitation which accounts for 18
percent of the allocation also includes road of different type along with drainage
and a few scheme of drainage exclusively. Community hall and rooms with
Baramdah have the fund share of 8%. So in priority sector we only see Drinking
water 2 percent and Irrigation 3 percent.
Sanitation
Agriculture
DrinkingWater
Connectivity
Road
Communityhall
VillageRoad
Connectivity
Bridge
Other
Sector wise scheme share

11. This chart clearly shows that the schemes selected during last five years are not in
line of Gender responsive budgeting. And hence care should be taken before
scheme selection and honorable Member of Parliament should be informed and
aware on gender related issues.
MPLAD scheme compilation of fund and Sector
(Period : 2004-05 to 2008-09)
Nature of
Scheme
No of
Schemes
Cost of
Schemes
Fund
Released
Total fund
Utilised
Total
Completed
Scheme
Sanitation 45 14,130,330 13,793,180 9,933,838 32
Agriculture 10 2,009,300 1,857,615 945,756 4
Drinking Water 33 1,271,813 1,202,525 1,064,526 28
Connectivity Road 147 43,976,940 42,132,350 34,596,660 112
Community hall 25 5,846,600 4,682,100 708,500 4
Village Road 7 1,737,100 173,100 1,227,842 4
Connectivity Bridge 13 4,153,600 4,028,200 3,040,776 8
Other 9 3,376,400 2,974,200 1,243,650 4
Total 289 76,502,083 70,843,270 52,761,548 196
KEY RECOMMENDATIONS
To help the MPs to prioritize the felt needs of various groups of population, the
PRIs may be asked to provide a list of works to be recommended to the MP annually
as PRIs represents 50% women this will ensure the gender inclusive planning.
MPs so they should be informed about gender issues before making choices for a
particular scheme. It is open and only bar a few activities so wide range and issues
related to gender should be given in the guideline.
Sanitation
18%
Agriculture
3%
Drinking Water
2%
Connectivity
Road
58%
Communityhall
8%
Village
Road
2%
Connectivity
Bridge
5%
Other
4%
Fund distribution of Schemes

12. Works Cited
(2009, December). Retrieved from MPLAD Guideline: www.mplads.nic.in
DLHS-3. (2008). District Level Health Survey. Ministry of Health and family welfare, Govt. of India.
Gender Budgeting Handbook forGovt of India Ministries and Departments . (2007). Ministry of
Women and Child, Government of India.