Aali Sinha: Rescue the SSA

While there are several inputs that go in efficiently operationalising any scheme, finally it is effective management that results in the success or failure of the programme. Sarva Shiksha Abhiyan (SSA), the programme aimed at achieving universal primary education by 2007 is one such example of how even well intentioned schemes of the government lose much of their impact due to procedural mismanagement. It is true that substantial successes have been made in bringing children back to schools, but the targets set under the SSA will most likely overshoot their deadline.

Broadly, there are still 1.36 crore children who do not go to school despite the government having spent almost Rs 11,133.5 crore under the SSA in the last four years, as has been revealed by the Performance Audit Report of SSA conducted by the CAG this year.

Financial resources are one of the most critical resources in project implementation and adequate funding is as essential as timely disbursement in reaching set targets. One finds that the funding pattern under SSA has faltered on both these counts. Through the four years of its implementation, it was observed that the revised estimates ranged from 43-57 percent of the outlay approved by the PAB (Project Approval Board) of the Department of Education. For instance, the funds released (Rs 12,983.5 crore) by the Ministry and respective states governments were far less than the outlays approved (Rs 23,850.8 crore) by the PAB. Delay in release of funds was another phenomenon, reflecting upon the indifference in practices related to the implementation of SSA. According to the procedure, the ministry has to release funds twice every year in April and September and the participating states have to contribute their share within 30 days of receipt of central funds, but these schedules haven't been maintained. In 2004-05, 12 out of 35 states received their first instalment of the grant in September when it is actually the time to release the second instalment. In many cases, the funds have been released on March 31 to avoid the lapse of funds. Obviously this prevents expenditure to be incurred in the same financial year.

But not only do line departments work with reduced funds that are released months behind schedule, often the SSA funds are diverted for meeting expenditure that is not even covered under the scheme. For instance, in Bihar about Rs 15.8 crore was spent to meet the salaries of teachers, mid-day meals and purchase of utensils during 2003-05. CAG's audit assessment reveals that funds to the tune of Rs 99.8 crore were diverted for various uses such as honorarium for shiksha karmis, purchase of typewriters/computers and utensils, printing of ABL cards and so on.

One of the major weaknesses of SSA has been the lack of systematic monitoring and evaluation built into the scheme. Bringing all children within the ambit of the education system requires major interventions along with concentrated and consistent efforts at all levels, that is, from planning the budgetary allocations to ensuring meaningful classroom interaction between the teacher and her pupils. But until and unless there is timely provision of required funds and subsequent implementation, a possible success story would be converted into a much avoidable failure.

The author is with Indicus Analytics