VALUE for MONEY

An Analysis of Odisha Budget 2016-17

u Budget invited people's opinion

through a dedicated web portalbudget.odisha.gov.in
u Gender Budget Statement (GBS)
is to be introduced in detailed
Budget at a Glance
u Supply of Pre-School Education
material to Anganwadi centres
gets due share.
u State to come up with Promotion
of Gender Friendly Tools for Farm
Women in Odisha
u Special allocation made to promote
millet cultivation in tribal areas

Odisha Budget and Accountability Centre (OBAC), CYSD

www.obac.in

Centre for Youth and Social Development

www.cysd.org

Value for Money: an analysis of State Budget 2016-17

www.obac.in

Forward
The structural shift in the centre state fiscal management
has been quite visible over the last two years. The State
Budget 2016-17 is seen as a critical phase for the state
owing to the recent changes in the centre state sharing of
resources and restructuring of the central schemes.
It is assumed that the above changes combined with
increased tax devolution of central taxes would provide
autonomy to set the budget priorities at the state level.
While the state is struggling to achieve the target growth, it
has not been able to increase the tax-GDP ratio appreciably.
Despite the effort to bring a separate agriculture budget, the
contribution of agriculture sector to the state GDP has not
been encouraging so far.
This document provides a quick analysis of the budget
priorities and proposals of the state budget 2016-17. The
main purpose of this publication is to facilitate an informed
discussion on the state budget, particularly around issues
relevant for the marginalised segment of the society in
particular and the social sector in general.

Jagadananda
Mentor and Co-Founder - CYSD

01

Value for Money: an analysis of State Budget 2016-17

VALUE for MONEY

An Analysis of Odisha Budget 2016-17

Team (OBAC):
Basanta Kumar Nayak
Bhabani Prasad Mahapatra
Nilima Priyadarsini Mishra
Soumita Chakraborty
Madhulika Sista
Surendra Sahoo
Uppali Mohanty

Odisha Buget and Accountability Centre

Centre for Youth and Social Development
E-1, Institutional Area
Gangadhar Meher Marg
Bhubaneswar - 751013
Odisha, India
Tel: +91 674 2300774 / 2301725
Fax: +91 674 2301226
E-mail: cysd@cysd.org, obac@cysd.org

c CYSD, 2016
This work can be reproduced in whole or part for any
use except commercial purposes by any individual or
institutions with due acknowledgment to this report.

02

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Value for Money: an analysis of State Budget 2016-17

www.obac.in

Content
Executive Summary

........................................................................................................... 04

State Budget 2016-17: An Overview

Health

................................................................................. 05 - 06

................................................................................................................................ 07 - 09

Education

........................................................................................................................... 10 - 12

Young Children

.................................................................................................................. 13 - 14

Drinking Water & Sanitation

............................................................................................. 15 - 16

Development of Scheduled Tribes (ST) and Scheduled Castes (SC)

Women

................................ 17 - 19

............................................................................................................................... 20 - 21

Rural Development

............................................................................................................ 22 - 24

Agriculture and Livelihoods

.............................................................................................. 25 - 28

03

Value for Money: an analysis of State Budget 2016-17

Executive Summary
Finance Minister of Odisha in his Budget Speech, called the State Budget
2016-17 People's Budget. After several years of active civil society
campaign on Participatory Budgeting in State, Government of Odisha for
the first time in 2012 convened a Pre-Budget Consultation involving a
cross section of experts, civil society organizations and representatives of
the trade & industries and farmers. This year the State has gone one step
further to create scope for people's opinion in State Budget by launching a
dedicated web portal-budget.odisha.gov.in. An SMS number and an
E-mail ID were also generated to seek people's suggestions in budget
preparation.
State budget 2016-17 is crucial for Odisha's economy mainly because of
two reasons. First, budget 2016-17 is expected to address numerous
challenges by increasing its public spending with increased own tax base
to help the economy grow. Secondly, the resource share mechanism in
most of the important schemes which remained in uncertainty in 2015-16,
is now apparent with a 60:40 fund sharing pattern between the Union and
State Government. This would have evidently led the State to plan for
prudent expenditure management and use the fiscal autonomy to set its
budget priorities in the sectors needed.
State budget however, seems to be focused more on management of
expenditure rather than the allocation priorities and enhancement of own
revenue. The estimation of State's own revenue is Rs. 33022.93 Cr in
2016-17, which has been marginal increased by 7.5 percent over last year.
No new tax proposals or tax measures have been introduced to augment
State's own revenue in the State Budget this year. State's own tax-GSDP
ratio stands at 8.61 percent which continues to exhibit a declining trend
since 2013-14.
Budget 2016-17 has been pegged at Rs 94052.63 Cr with an increase of 11
percent over budget 2015-16. Similarly, the plan budget which is
estimated at Rs 45956.16 Cr is an increase of around 13 percent (Rs 5400
Cr) over plan budget 2015-16. A significant increase in state budget (29%)
as well as plan budget (34%) is seen in budget 2015-16, as a result of
inclusion of all Central Sponsored Schemes (CSSs) which were bypassing
state budget, in to state budget during 2014 15. In the years, 2012-13 and
2013-14, the increase in state budget was 12.23 percent and 18.78 percent
and the plan budget growth was 20.48 percent and 32.49 percent
respectively. Thus, the modest increase of state budget 2016-17 has not
been substantive as compared to the years 2012-13 and 2013-14 or
responsive to the available fiscal autonomy in recent centre state fiscal
relationship.
Budget 2016-17 targets borrowing of an amount of Rs. 15740 Cr. The
amount of borrowing in 2016-17 is the highest among all the years since
1999-2000. It is announced that the increased borrowing would create
space for higher capital outlay in the state. On the other hand, Capital
expenditure without public debt repayment and loans and advances has
been estimated at Rs. 16749.7 Cr in 2016-17 which is almost same as
compared to Rs. 16595.7 Cr in 2015-16.
There has been a long debate for increasing social sector investment.
Though State Budget 2016-17 claims to be pro-social sector and the social
sector investment increases to 35.96 percent of total state budget
compared to 34.43 percent in 2015-16( Budget Speech 2015-16 and 201617), looking the commitments in Sustainable Development Goals (SDGs)
and the myriads of development challenges in rural Odisha related to
health, education, water and sanitation, etc. it seems that the priorities of
social sector has not been adequately addressed by this year's budget.
Budget for health is 1.25 percent of GSDP and 5.1 percent of the total state
budget in 2016-17. However, state's total public expenditure on health is
far from meeting the 12th Five Year Plan target of 2.5 percent of GSDP as
well as calls attention to be increased to 2.5-3 percent of GDP as per
national health policy.

04

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Though budget for School & Mass Education department has been
increased by 20.88 percent in 2016-17 compared to budget 2015-16 RE, as
percentage of GSDP, School and Mass Education (S&ME) department
budget has decreased from 3.23% in 2014-15 to 2.93 % in budget 2016-17.
It is worth mentioning that the State budget 2016-17 has allocated Rs 34 Cr
as per the real requirement towards supply of Pre-School Education
materials in the state. The provision of Rs 140 Cr towards construction of
7000 Anganwadi buildings looks insufficient as it would require around
Rs 350 Cr.
Budget for SNP is Rs 843.68Cr in budget 2016-17 same as in budget 201516 BE. So, there will be no increase in unit-cost of SNP. Looking at the
increased market prices of different food items it will be difficult to
provide SNP to all eligible children.
Allocation for Nirmal Bharat Aviyan (NBA) /Swachha Bharat Mission
is proposed at Rs.740.43 Cr in Budget 2016-17 which is decreased by
224.32 Cr than previous year. It poses a question whether the current state
of allocation would meet the ambitious target of making rural India open
defecation free by 2019.
MGNREGA is a key programme to address the unemployment issues of
the rural masses. Budget for MGNREGA has reduced from Rs. 2336.42 Cr
in 2015-16 RE to Rs. 1659.89 Cr in 2016-17. The number of man days
under MGNREGA has reduced from 711.83 lakh in 2013-14 to 534.75
lakh in 2014-15 (Economic Survey 2015-16). However, considering State
Government announcement to increase the man days under MGNREGA
in drought-hit-areas to 200 days, a quantum jump was required in outlay
under MGNREGA. Looking into the proposed outlay under this scheme,
Government's claim to emphasize livelihood opportunities seems
concerning.
Tribal Sub Plan (TSP) and Scheduled Caste Sub Plan (SCSP) are the key
programmes for development of Scheduled Tribes and Scheduled Castes
in the State. As per norm, SCSP and TSP allocation need to be in
accordance with the proportion of these communities in total population.
Accordingly, the resource allocation for TSP and SCSP should be 23
percent and 17 percent respectively. Budget 2016-17 allocates Rs 9235 Cr
under TSP and Rs 6846 Cr under SCSP, which is 19.68 percent and 14.59
percent of State plan. Out of the total departments only Forest, Panchayati
Raj, Revenue & Disaster, Steel & Mines, Water Resources and Women &
Child Development has allocated as per the proportion of the tribal
population.
In order to boost the agriculture growth, State has been bringing separate
agriculture budget since last four years. Budget for agriculture
encompasses Agriculture and Farmers' Empowerment, Irrigation, Cooperation, Fisheries and Animal Resources Development departments.
Agriculture budget has increased by 20.89 percent in 2016-17. A special
programme for Millet in Tribal Areas is to be implemented by the State to
enhance production and productivity of millets in tribal areas. Irrigation
has also been earmarked with a substantial amount of Rs. 7240 Cr.
However, this allocation doesn't seem to be effective considering a
significant number of blocks (198) yet to be achieved 35 percent irrigation
facility. Again, the State Budget 2016-17 is also silent about the fate of
organic farming in State.
The Finance Minister in his speech has mentioned to bring a Gender
Budget Statement covering Part A and Part B in the Detailed Budget at a
Glance to be presented in the Odisha Legislative Assembly later this year.
However, for focused development plan for women in State, a separate
Gender Budget Statement is required.
Again, GBS only represents a small part in the overall framework of the
Gender Responsive Budgeting. To make the gender budgeting initiatives
more meaningful, schemes need to be formulated taking into account the
grass root realities and the process of continuous assessment and audit.

Value for Money: an analysis of State Budget 2016-17

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1. State Budget 2016-17: An Overview

State budget 2016-17 is crucial for Odisha economy
mainly because of two reasons. First, budget 2016-17 is
expected to address numerous challenges by increasing
its public spending and own tax base to help the economy
grow. Secondly, the resource share mechanism in most of
the important schemes which remained in uncertainty in
2015-16, is now apparent with a 60:40 fund sharing
pattern between the Union and State Government. This
would have evidently led the State to plan for prudent
expenditure management and use the fiscal autonomy to
set its budget priorities in the sectors needed.

Key Observations:

budget. In the years, 2012-13 and 2013-14, the

increase in state budget was 12.23 percent and 18.78
percent and the plan budget growth was 20.48 percent
and 32.49 percent respectively. Thus, the modest
increase of state budget 2016-17 has not been
substantive as compared to the years 2012-13 and
2013-14 or responsive to the available fiscal
autonomy in recent centre-state fiscal relationship.
Budget 2016-17 targets borrowing of an amount of

Rs. 15740 Cr. The amount of borrowing in 2016-17 is

the highest among all the years since 1999-2000. It is
announced that the increased borrowing would create
space for higher capital outlay in the state.

The State continues to be a revenue surpluss State

since 2005-06. Revenue surplus is estimated at Rs

3683.33 Cr for State budget 2016-17.
No new tax proposals or tax measures have been

introduced to augment State's own revenue in State

budget 2016-17. State's own revenue is estimated at
Rs. 33022.93 Cr in 2016-17 which has marginally
increased to 7.5 percent over last year. State's own taxGSDP ratio stands at 8.61 percent in 2016-17 which
maintains a declining trend since 2013-14.
Budget 2016-17 has been pegged at Rs 94052.63 Cr

with an increase of 11 percent over budget 2015-16.

Similarly, the plan budget which is estimated at Rs
45956.16 Cr has got an increase of around 13 percent
(Rs 5400 Cr) over plan budget in 2015-16. Allocation
under CSSs till 2014-15 had been bypassing the State

Capital expenditure without public debt repayment

and loans and advances has been estimated at Rs.

16749.7 Cr in 2016-17 which is almost same as
compared to Rs. 16595.7 Cr in 2015-16.
There has been a long debate for increasing social

sector investment. Though State Budget 2016-17

claims to be pro-social sector and the social sector
investment increases to 35.96 percent of total state
budget compared to 34.43 percent in 2015-16( Budget
Speech 2015-16 and 2016-17), looking the
commitments in Sustainable Development Goals
(SDGs) and the myriads of development challenges in
rural Odisha related to health, education, water and
sanitation, etc. it seems that the priorities of social
sector has not adequately addressed by this year's
budget.

Fig 1.1: Growth of State Budget

30.0
27.0
25.0
20.0
18.8

18.8

15.0
10.0

12.2

11.0

5.0
0.0
2012-13

2013-14

2014-15

2015-16

2016-178

Growth of State Budget

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Value for Money: an analysis of State Budget 2016-17

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Table 1.1: What are the major Items of Receipt of state budget? (In Rs. Cr)

Items
State's Own Tax
State's Own Non Tax
Total State's Own revenue
Own Revenue GSDP ratio
State's share in Central Taxes
Grant - in - Aid
Total central transfer
Share of central transfer in
total revenue
Total Revenue (State + Centre)

2012-13

2013-14

2014-15

2015-16 RE

2016-17 BE

15034.13
8078.03
23112.16
9.05
13965.01
6859.73
20824.74
47.40

16891.59
8378.6
25270.19
9.11
15247.24
8429.42
23676.66
48.37

19828.29
8070.87
27899.16
9.01
16181.22
12917.51
29098.72
51.05

21700
9000
30700
9.24
23573.75
7295.43
40869.18
57.10

23200
9822.93
33022.93
8.62
26567.56
18536.22
45103.78
57.73

43936.94

8946.85

56997.88

71569.18

78126.71

Source: Compiled from Budget at a Glance and Annual Budget 2016-17

Table 1.2: Budgetary allocations for Plan and Capital Outlay (In Rs. Cr)

Items

2011-12

2012-13

2013-14

2014-15

2015-16 RE

2016-17 BE

State Budget
Increase (%)
Plan Budget
Increase (%)
Capital Expenditure
( Without debt repayment
& loans and advances)

42105.1

47255.62
12.233
17336.83
20.48
5622.18

56130.92
18.781
22969.73
32.49
7756.4

65597.77
16.866
30192.93
31.45
11074.63

84694.5
29.112
40543.22
34.28
16595.7

94052.65
11.049
45956.16
13.35
16749.7

14389.64
4496.09

Source: Compiled from Budget at a Glance and Demand for Grants 2016-17

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2. Health
The health indicators of Odisha are far behind the national
average. The crude birth rate of the state is 8.4 percent per 1000
population against national average of 7 percent per 1000
population as per Sample Registration System (SRS, 2014). In
case of infant mortality rate (IMR), the state ranks second from
last with 51 per 1000 live births. The Maternal Mortality Ratio
(MMR) is 222, remains third highest among the high focussed
states in the country. In order to bridge the gap prevailing in the
health sector and to achieve the SDG Goal- 3 Ensured
Healthy Lives and promotes Well-being for all at all ages,
there is a need to increase the public spending on health
significantly, preferably at 2-3 percent of state GSDP as per the
National Health Policy target and 12th five year plan targets.

not given priority towards allocating resources for beds as

per the existing demands at least at district head quarter
hospital and community health centre level.
Medical devices are considered to be crucial for the services

offered in prevention, diagnosis, treatment and

rehabilitation of illness and diseases. Although the capital
expenditure has increased but has not given priority to the
purchase of medical devices which are essential in health
service delivery system. In 2016-17, Rs 120 Cr has been
allocated to purchase medical equipments. The allocation
under this head was Rs. 181 Cr in previous year. Again, the
field observations show, there is a shortfall of trained
medical staffs to operate the existing medical devices in the
hospitals. Hence, considering the patients' load in public
hospitals allocation to be made to purchase the medical
devices and to train the health professionals to operate these
devices.

Key Observations:
Health is one of the basic necessary services in States like

Odisha. However, the State has been ranked below the

national average in most of the health indicators for years.
Despite, the increase in budget allocation for Health &
Family Welfare, State's total public expenditure remains
around 4-5 percent of total State's share. Share of public
spending on health (1.25 percent of the GSDP in State
Budget 2016-17) is far from meeting the 12th Five Year
Plan's target of 2.5 percent of the GSDP.

Budget for National Health Mission (NHM) has been

increased by Rs 247.93 Cr in State Budget 2016-17

(allocation under NHM in 2016-17 is Rs 1197.15) over last
year (allocation under NHM in 2015-16 was Rs. 1088.32
Cr). However, the allocation under NHM in the revised
estimate was reduced to Rs. 949.22 Cr from the budgeted
estimate of Rs 1088.32 Cr in 2015-16. Similarly the actual
expenditure under NHM was reduced to Rs 702.51 Cr from
the budgeted expenditure of Rs 1093.99 Cr in 2014-15.
Looking into the importance of NHM in rural health
services, a concrete plan requires to be in place in 2016-17
for optimal utilization of the earmarked fund.

In 2016-17, allocation for procurement of essential drugs

and medicines has been increased to Rs. 222.31 Cr from Rs

212 Cr in 2015-16. Again, as per the Economic Survey
2015-16, total patients to public health institutions are 3.21
Cr (76.04 percent of the total population). Accordingly, per
head medicine cost stands only at Rs.71. Moreover, a
proper monitoring mechanism needs to be in place to ensure
availability of required amount of medicines and the
medicine prescribed by the doctors in hospitals' stores.

In 2016-17, an amount of Rs 1 Cr has been proposed to be

with the collectors of 11 backward districts for improved

delivery of healthcare services. This initiative has been
taken by the State Government to address the nonavailability of doctors in the inaccessible remote location.

In Odisha, 4 beds are there per 10,000 population which is

far below than the WHO's guideline of at least 1 bed per

1,000 population. In-patients to total population have
increased from 6.61 percent in 2009-10 to 10.14 percent in
2015-16. Accordingly, the bed occupancy rate has also
increased. However, the number of bed in public hospitals
has not been increased for last 4 years. Budget 2016-17 has

An amount of Rs 15 Cr has been provisioned under

Planning and Convergence Department for viability gaps

funding to attract the private investment for rural health
sector.

Table 2.1: Total Health Sector - Allocation: (Rs in Cr)

Year

Health & Family

welfare
Department

Other Department CSS Bypassing

state budget

External Assistance
without being routed
through state budget

Total health
Spending in
the state

2012-13
2013-14
2014-15
2015-16RE
2016-17BE

1800.26
1985.14
3203.53
3882.34
4793.97

23.59
24.86
25.46
65.24
55.79

142.44
a33.41
42.04
0
0

2322.03
2481.71
3879.33
3907.9
4849.76

355.75
438.3
0
0
0

Source: compiled from Demand for Grants and Budget at a Glance, different years, GoO

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The total public expenditure on health, which is incurred primarily by Health and Family Welfare (H&FW) department and
Labour and Employment department, increased by Rs 941.86 Cr i.e from Rs 3907.90 Cr in 2015-16 RE to Rs 4849.76Cr in
2016-17. Labour and Employment department allocates only for employees state insurance schemes.
The share of public spending on health in the state budget is seen volatile. Budget for health is 1.25 percent of GSDP and 5.1
percent of the total state budget in 2016-17. However, state's total public expenditure on health is far from meeting the 12th
Five Year Plan target of 2.5 percent of GSDP.
Fig 2.1: Share of Health budget in State Budget and GSDP

6.00
5.00
4.00
3.81

5.10

4.80

4.58

1.03

1.17

1.25

2014-15

2015-16 RE

2016-17 BE

3.54

3.00
2.00
1.00
0.71

0.72

2012-13

2013-14

0.00

As % of Total Budget

As % of GSDP

Undoubtedly, the health expenditure towards capital account has been increasing over the years. In 2016-17 budget, the state
has allocated Rs 739 Cr (15.42 %) for creation of infrastructure, which includes construction of five medical colleges in the
state.
Fig 2.2: share of capital expenditure in health budget

100.00

92.98

91.08

86.14

85.90

84.58

80.00
60.00
40.00
20.00

7.02

8.93

13.86

14.10

15.42

0.00
2012-13

2013-14

2014-15

2015-16 RE

2016-17 BE

Revenue expenditure as % of Departmental Expenditure

Capital Expenditure as % of Departmental Expenditure
Budget for NHM:
Budget for National Health Mission (NHM), being one of the major drivers in health sector, has been increased by Rs 247.93
Cr in 2016-17 (Rs 1197.15 Cr) as compared to Rs 949.22 Cr in 2015-16 RE. However, the allocation in 2015-16 BE is lower
than those in 2015-16 RE. The allocation for NHM in 2015-16BE was Rs 1088.32 Cr which reduced to Rs. 949.22 Cr in 201516RE. Similarly, in 2014-15, the actual expenditure under NHM ( Rs 702.51 Cr) fell short compared to Rs 1093.99Cr in
2014-15BE.
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Value for Money: an analysis of State Budget 2016-17

Scheme

2014-15 BE

2943-National Health Mission 1093.492

www.obac.in

2014-15

2015-16 BE

2015-16 RE

2016-17 BE

702.5153

1088.32

949.22

1197.15

Source: Detail Demand for Grant 2016-17

Budget for Access to Free Medicine:

As per a study conducted by Health and Family Welfare department, GoO, estimated Out of Pocket Spending (OOPS)
on health care amounts to approximately 80 percent of total health expenditure, where medicines account the major
share of total health expenditure. For ensuring access to free medicine, in 29th April 2015, GoO launched Niramaya
free Medicine Scheme which will cover 570 types of medicines for patients. In budget 2016-17, the allocation for
medicine is Rs 222.31 Cr which was Rs 210 Cr in 2015-16. As per Economic Survey 2015-16, the total patients to
public health institutions is 3.21 Cr (76.04 % of total population), which counts per head medicine cost at Rs 71. The
per head medicine cost in 2015-16 was Rs 75.
Beds in Public Health Institution:
The inpatient to the total population which was 6.61percent in 2009-10 has increased to 10.14 percent in 2015-16 at the
same time the bed occupancy rate is also increasing (Economic Survey 2015-16). As compare to the inpatient load, bed
occupancy rate and the dependency of poor people upon the government hospital, the number of bed in the public
hospital has not been increased during last 4 years. There are less than 4 bed per 10, 000 population which is far below
the WHO guideline. However, budget 2016-17 have not given priority towards increasing beds in public health
institutions in state.
Table 2.2: Allocation for some special components (In Rs Cr)

Year/ Head

2012-13

2013-14

2014-15

2015-16 BE

2016-17

24002-Diet
15001-Bedding,Clothing & Linen
32004-Equipments

18.84
1.53
3.647

20.49
1.41
45.68

22.8088
1.1073
111.51

27.0608
1.5628
181.0722

28.8485
1.571
120.22

Source: compiled from Demands for Grants, different years

Budget allocation for prevention for control of Malaria:

Malaria is the foremost public health problem in Odisha which contributes maximum to the malaria burden of the
nation. One of the factors for IMR is high incidence of malaria. As a measure of prevention & control of malaria in the
high burden districts, Mo Mashari under state plan was carried out, under which Long Lasting Insecticide Nets
(LLIN) are provided to pregnant women and boarders of Tribal hostels. The allocation under Mo Mashari was Rs 10
Cr in 2013-14 and Rs 7 Cr in 2014-15. Since 2015-16, there is no allocation made under this head.

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Value for Money: an analysis of State Budget 2016-17

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3. Education: The differing fact of Investment

and Quality
It is universally accepted that education plays a vital role in
social transformation and advancement. So policy
provisions for education and quantum of investment in
education are the measurable indicators at the input level.
Similarly quality of education provided by the state and the
quality of human resource produced are the indicators at the
output level. In a state like Odisha, status of both the input
indicators and output indicators are not reasonably better
than the national/international standard. In line with Right to
Education Act (RTE), the state government has made
Odisha Right of Children to Free and Compulsory
Education Rule 2010. However, this rule is still ahead of a
financial transformation. In the same way the quality of
education provided in the public facilities are far away from
the satisfaction level.

urgent need to review and make necessary changes in the

existing education pattern in Government run schools.
Elementary education has seen evolutionary changes

during last one and half decade in Odisha, both in policy

and implementation. Now the major concern in
elementary education is the provision of quality
education in Government schools. According to the
ASER (Annual Status of Education Report) 2014, 48
percent of the standard V students cannot read texts of
standard II, , 53 percent of the children cannot do
subtraction, 64 percent of standard VII students cannot
do division and 60 percent of standard VII student cannot
read English sentences. Looking into the context, State
needs to give emphasis on the qualitative inputs like
teachers' training, extracurricular activities in schools
and good class room environment/ transaction etc. on the
other hand, Budget 2016-17 seems to follow the
traditional budget management system with less
consideration to the demand for addressing the issues of
quality education in Government schools.

Key Observations
In 2016-17, Budget for School & Mass Education

(S&ME) has decreased from 3.23 percent of GSDP to

2.93 percent of GSDP. Although the budget for S&ME
has increased by 20.88 percent in 2016-17 compared to
the revised estimate of budget 2015-16.

Budget for Sarva Shiksha Abhiyan (SSA), has been

estimated at Rs. 1906.42 Cr in 2016-17. However, the

budgeted estimate of Rs. 1860.38 Cr under SSA was
decreased to Rs 1294.48 Cr in the revised estimate in
budget 2015-16.

Budget for School and Mass Education (S&ME) has

substantially been increased for last 5-6 years.

Simultaneously, the enrolments in Government run
schools have substantially decreased. Budget for S&ME
had been doubled from Rs 4017.65 Cr in 2009-10 to Rs
8918.16 Cr in 2014-15 BE. Contrastingly, enrollment in
Government schools decrease from around 79.58 lakh in
2009-10 to 74.35 lakh in 2014-15. Hence, there's an

Only 1 percent schools in State is RTE compliant. In this

context, State needs to conduct an independent stock of

RTE compliance of Schools and fix a deadline to
ensure hundred percent RTE compliant schools.

Fig 3.1: Share of School and Mass Education budget in state budget and GSDP

15.00

13.45

12.52

11.74

12.49

11.97

11.85

10.98

11.95

2.80

2.93

10.00
5.00

2.52

2.29

2.19

2.31

2.42

3.23

2009-10

2010-11

2011-12

2012-13

2013-14

2014-15

0.00

As % Total State Budget

10

As % of GSDP

2015-16
(RE)

2016-17
(BE)

Value for Money: an analysis of State Budget 2016-17

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State's Approach towards Quality Elementary Education:

In the context of quality of education few components are commonly accepted and recognized. The components are
healthy learners, good and relevant curriculum, trained teacher, adequate facility/environment and outcome (learning
level of children). It was expected that Odisha Right of Children to Free and Compulsory Education Rule 2010 will help
in ensuring quality elementary education in the state. However, within this seven years (from 2010-11 to 2016-17)
performance of the state is not satisfactory. Despite of the policy and budgetary modifications quality education has not
been ensured to the children.
Table 3.1: Budget for Elementary Education (In Rs Cr)

2009-10 2010-11 2011-12 2012-13 2013-14 2014-15 2015-16 (RE) 2016-17 (BE)
Elementary Education 2641.41 2901.74 3153.93 3963.28 4551.23 5153.00 6153.01

7234.62

Source: compiled from Detailed Demand for Grants, different years

Budget 2016-17, is silent about the quality of education. Despite of serious demand neither any scheme / strategy for
teacher training nor any plan for stringent monitoring is introduced this year.
Year

Enrolment

2014-15
2013-14
2012-13
2011-12
2010-11
2009-10

63.87
63.88
64.22
65.2
65.79
66.21

As per the ASER report 2014, 48% of the class V student can not read class II level
text, 53% of the children can not do subtraction, 64 % of class VII student can not do
division and 60% of class VII student can not read English sentence.

Status of Civil Facilities in

government Schools
No girl's toilet
No common Toilet
No electricity
No play ground
No Ramps
No drinking water
No Computer

7497
12364
43386
41643
17060
1714
49175

Nature of Investment in Primary and Upper primary schools (In Rs Cr)

Scheme/Program/component

2015-16

2016-17

Sarva Sikshya Aviyan

Mid-day meal programme
Elementary Scholarship
(Primary+ Upper primary)
Mathematics Talent Search

1294.48
642.31
3.60

1906.42
816.96
3.60

2.50

2.50

To address the facility gap in schools, SSA is the only source of investment. Under SSA, the state receives grant
from the union government. Due to ambiguity in centre state sharing, the revised allocation under SSA in 2015-16
was very less. However, this year SSA budget has substantially been increased.
Changing scenario and Budget for Secondary Education
After implementation of SSA, the states approach towards elementary education has changed. With the financial
support from the union government, investment for elementary education has been increased many folds. The
allocation under secondary education has not been increased substantially as compared to allocation under
elementary education within the same period.
11

Value for Money: an analysis of State Budget 2016-17

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Table 3.2: Budget for Secondary Education (In Rs Cr)

Secondary Education

2009-10

2010-11

2011-12

2012-13

2013-14

2014-15

2015-16

2016-17

1395.91

1537.26

1665.75

1847.35

2064.59

2586.62

2966.94

3793.10

Budget for secondary education has increased from Rs 2966.94 Cr. in 2015-16 to Rs 3793.10 Cr. in 2016-17. However,
there is no strategy to address different issues at the secondary education level. The student classroom ratio is 52, dropout rate in class IX-X is 49.48% and transition rate from secondary to higher secondary is very less (2.25 %). Similarly
trained and qualified teachers at the secondary level are also a bigger issue. Educational qualification of around 9000
teachers is below graduation (NUEPA 2015).
Rastriya Madhyamik Sikshya Aviyan(RMSA):
To supplement the investment made for secondary education in the state, union government is providing resource
support through RMSA. Budget for RMSA during 2015-16BE was only Rs 94.34 Cr, which increased to Rs 428.75 Cr
in 2015-16 RE. In 2016-17, the estimated budget for RMSA has further increased to Rs 686.10 Cr.

Table3.3: Budget for RMSA (In Rs Cr)

RMSA

12

2014-15

2015-16 (BE)

2015-16 (RE)

2016-17(BE)

248.46

94.34

428.75

686.10

Value for Money: an analysis of State Budget 2016-17

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4. Young Children: Little reason to cheer

Young children refer to the children in the age group of 0-6
years. Neither they can raise their voice nor can they claim
their entitlement. But their status determines the health of
the society. So investment in children, specifically young
children is crucial for the development of the nation.
It is not easy to measure the quantum of investment on
young children because of unavailability of disaggregated
information. Similarly there are also investments on women
(mother) which indirectly benefit the children. However, the
flagship scheme Integrated Child Development Service
(ICDS) and Supplementary Nutrition Programme (SNP) are
the two big programmes which directly benefit the children.
These two schemes cater to the nutrition, health and
education need of the young children. So the amounts of
investment on young children mostly depend on the budget
for ICDS and SNP programme.
Key Observations
In 2015-16, budget for Integrated Child development

Services (ICDS) programme as a whole was estimated at

Rs. 1714.27 Cr but was further decreased to Rs. 1014.27
Cr in 2015-16 RE. However, Rs. 2233.97 Cr has been
allocated under ICDS in 2016-17.

Project Officer (CDPO) at project level. Huge vacancies

of human resources at all these three levels exist in
Odisha. Specifically, the post of AWWs and supervisors
are laying vacant in prolonged basis. Similarly, as per
the new Early Childhood Care and Education (ECCE)
policy, the State has not so far appointed Nutrition
Councilor cum Additional Worker for high burden
districts and link worker in non-burden districts.
Currently, 9,524 identified Anganwadi Centres (AWCs)
are there in highly burdened districts (Boudh,
Dhenkanal, Gajapati, Kalahandi, Koraput and
Malkangiri) and 61,610 AWCs are there in 24 nonburdened districts of Odisha.
Successful implementation of pre-school programme

under ICDS heavily depends on the trained AWWs.

However, considering the existing skill of the AWWs,
especially in tribal areas, State needs to organize
rigorous and continuous training programmes to avail
the expected outcome of Pre-School Education (PSE).
After the launch of Nua-Arunima, it was expected to see
visible changes in the area of PSE programme in State.
However most of the AWWs have not received any
specific training on Nua-Arunima. Again, a separate
budget head with appropriate plan is required for
training of Anganwadi workers.

Budget for PSE has substantially increased from Rs.

17.93 Cr in 2015-16 to Rs. 34.00 Cr in 2016-17. It will

certainly help in implementation of Nua Arunima
properly.
Budget for Supplementary Nutrition Programme (SNP)

has remained unchanged as Rs 843.68 Cr. in 2016-17 as

compared to the budgeted expenditure in 2015-16. As a
result, there will be no increase in the unit cost of SNP.
However, considering the increased market price of
different food items, it may be difficult to provide SNP to
all the eligible children.

Many of the AWCs, sanctioned during last five years, are

still incomplete. AWC buildings, constructed before 1015 years, presently are in dilapidated condition. These
centres with tin/asbestos roof top, either partially or fully
broken and are unsafe for the children. Hence, State
requires estimating the actual number of Pucca buildings
for AWCs and appropriately financing the same.
Similarly more budget should be allocated for repair and
renovation of the AWC buildings, which were
constructed before 10-12 year.
In 2016-17, 7000 AWC buildings have been planned to

Organizational structure of ICDS programmes includes

Anganwadi workers (AWWs) at village level,

supervisors at sector level and Child Development

be constructed. This requires a budget allocation of Rs.

385.00 Cr. whereas allocation made in Budget 2016-17
is only Rs 140.00 Cr.

Table 4.1: Budget for ICDS (In Rs Cr)

ICDS General
Supplementary Nutrition Programme
Construction of AWC Building
Total

2014-15

2015-16 (BE)

2015-16 (RE)

2016-17 (BE)

511.48
682.38
143.99
1337.85

570.59
843.68
300.00
1714.27

350.59
443.68
220.00
1014.27

1250.29
843.68
140.00
2233.97

Source: Demand for grants 2016-17, GoO

13

Value for Money: an analysis of State Budget 2016-17

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Budget for ICDS includes three sub schemes such as ICDS general, SNP and construction of AWC building. Budget for
ICDS general has substantially increased from Rs 570.59 Cr. in 2015-16 BE to Rs. 1250.29 Cr. in 2016-17BE. On the
other hand, budget for construction of AWC building has been slashed from Rs 300.00 Cr in 2015-16BE to Rs 140.00 Cr
in 2016-17 BE. In the budget speech the finance minister declared that 14481 Anganwadi Centre (AWC) buildings will
be constructed in the next four years in convergence with MGNREGA.

Budget for Pre-school Education

Budget for pre-school education programme has
increased from Rs 17.93 Cr in 2015-16 to Rs 34.00
Cr in 2016-17. This is a novel step to provide preschool education to all children and implement
Nua-Arunima as per the guideline.

Budget for Pre-school education

2014-15

2015-16 (BE)

2015-16 (RE)

2016-17 (BE)

16.97

17.93

17.93

34.00

Budget for ICDS training Programme

Trained human resource is the key to successful implementation of any programme. Specifically for pre-school
education programme trained Anganwadi Worker (AWW) are the key requirement. But most of the AWWs have not
received any specific training on pre-school education.
Under ICDS programme there is no specific budget head for training of the AWWs. However, budget for ICDS training
programme is supposed to be meant for training of AWWs. In the current budget an amount of Rs 13.38 Cr. has been
allocated for ICDS training programme. Looking at the number of AWWs in the state (71306) and their low educational
qualification the budget seems inadequate.
Budget for ICDS training Programme
2014-15

2015-16 (BE)

2015-16 (RE) 2016-17 (BE)

4.49

11.21

11.21

13.38

Budget for Child Protection

Child protection is another sensitive area to ensure the child rights. It is the responsibility of the state to protect to each
and every child from any type of violation. There are two major programmes in the state related to child protection such
as Integrated Child Protection Scheme (ICPS) and State commission for Protection of Child Rights(SCPCR).
Budget for ICPS programme has been decreased from Rs 53.62 Cr in 2015-16 RE to Rs 47.19 Cr in 2016-17. However,
budget for SCPCR has increased from Rs 0.44 Cr to Rs 0.59 Cr in the same period.
Budget for child protection
ICPS
SCPCR
Total

14

2014-15
26.29
0.25
26.54

2015-16 (BE)
25.62
0.25
25.87

2015-16 (RE)
53.62
0.44
54.06

2016-17 (BE)
47.19
0.59
47.78

Value for Money: an analysis of State Budget 2016-17

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5. Drinking Water & Sanitation

One of the most important determinants of community
health and well being is the status of safe drinking water
and sanitation. Water supply and sanitation were added to
the national agenda during the first five-year planning
period (1951-1956), and increasing investments have

been made in subsequent plans. In spite of several

policies, programme and scheme implemented in reality
access to toilet facilities, equitable access to drinking
water and water safety is still a major concern in Odisha.

Key Observatios
A sum of Rs.988.20 Crore is provided for safe drinking water facility.
Provision of safe drinking water through implementation of 600 rural piped water supply schemes, augmentation of

500 pipe water supply projects, installation of 1000 tube wells, installation & replacement with 2500 solar dual
pumps, construction of 300 overhead tanks and 500 iron removal units is envisaged in 2016-17.
Allocation for Nirmal Bharat Aviyan (NBA) / Swachha Bharat Mission is proposed at Rs. 740.43 Cr in Budget

2016-17 which is less by 224.32 Cr from the previous year.

Table 5.1: Allocation on Water Supply & Sanitation ( In Rs Cr)

Departments
General Administration
Housing & Urban
Rural Development
Total

2011-12

2012-13

2013-14

2014-15

2015-16 R.E

2016-17 B.E

380.34
270.47
650.81

4.27
459.67
312.09
776.03

3.50
892.75
386.63
1282.88

3.75
898.05
685.08
1586.88

4.90
837.50
1,912.76
2755.16

4.00
826.14
1,930.87
2761.01

Source: Compiled from Demand for Grants, GoO

Fig 5.1: Share of Water Supply and Sanitation in State Budget and GSDP

4.00%

3.25%

3.00%
2.00%
1.00%

1.61%

1.55%

2.29%

2.05%

0.47%

0.51%

2013-14

2014-15

2.94%

1.64%

0.29%

0.30%

0.31%

2010-11

2011-12

2012-13

0.79%

0.72%

2015-16 R.E

2016-17 B.E

0.00%

WS&S as % of GSDP

WS&S as % of Total Budget

Two major departments such as "Housing & Urban development" and "Rural Development" allocate resources for
water and sanitation in urban and rural area respectively. In 2016-17 budget for water supply and sanitation by both the
departments have remained almost same as compared to previous year. However, budget 2016-17 shows the priority for
rural water supply and sanitation.
15

Value for Money: an analysis of State Budget 2016-17

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Fig 5.2: Budget for Rural Drinking Water Programme (In Rs Cr)

National Rural Drinking

Water Supply Programme
Rural Water Supply Programme
Total

2011-12

2012-13

2013-14

2014-15

2015-16 RE

2016-17

169.21

205.29

281.95

427.20

300.00

517.20

0.20
169.41

0.26
205.54

0.00
281.95

51.23
478.42

335.00
635.00

351.00
868.20

Source: Demand for Grants, GoO

The strategic plan 2011-22, Ensuring Drinking Water Security In Rural India published by Department of Drinking
Water and Sanitation in Ministry of Rural Development, GOI, sets target of providing piped water supply to at least 90
percent of rural households of which at least 80 percent with a household connection. To ensure proper monitoring, the
targets have been split into two periods, first target to be achieved by 2017 (total 55% and within HH 35%) and the latter
by 2022 (total 90 % and within HH 80%), but the situation in Odisha is abysmal with only 1% of households with a tap
water connection within their premises and 8% in total in rural areas as per Odisha Economic survey 2014-15.
National Rural Drinking Water supply Programme (NRDWP) and Rural Drinking Water Supply program are the two
major schemes of supply of water to the rural areas. In budget 2016-17, allocation in both the heads together has been
increased only by Rs 233 Cr.
Budget for Nirmal Bhart Aviyan (NBA)
Budget for Nirmal Bharat Aviyan (NBA) which is known as Swachh Bharat mission (SBM) has been decreased in
Budget 2016-17. Budget for NBA which was Rs 964.32 Cr in 2015-16 RE has been reduced to Rs 740.00 Cr in budget
2016-17.
The concern is that whether the current state of allocation would meet the ambitious
target of making rural India open defecation free by 2019 (SBM).

16

Budget for NBA (Rs in Cr.)

2015-16(RE)

2016-17

964.32

740.00

Value for Money: an analysis of State Budget 2016-17

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6. Development of Scheduled Tribes (ST) and

Scheduled castes (SC)
The population of India consists of many diversified
groups and communities, Scheduled Caste (SC) and
Scheduled Tribe (ST) being two of them. As per the
Census report of 2011, these two communities constitute
around 40% of the total population of Odisha (SC17.13% and ST 22.85%). For the development of STs and
SCs, the state intervenes through both the SCs, STs, OBC
and Minorities welfare department as well as the
interventions reported in the Tribal Sub Plan (TSP) and
Scheduled Caste Sub Plan (SCSP) by a number of other
departments.
Key Observations

The 2016-17 budget has allocated only 19.68 percent

of the fund towards TSP whereas the norm

pronounces to be 22.85 percent. Likewise the SCs
receive only 14.59 percent fund under SCSP against
17.13 percent.
Forest & environment, Steel & Mines, Water

Resources, Panchayati Raj, Revenue and Disaster

Management and W&CD departments have adhered
to the norms and has shown departmental priority
towards SCs and STs.
In his budget speech the finance minister mentioned

SCs, STs, OBC and Minorities Welfare Department

budget has increased by 19 percent in 2016-17. The

department has allocated 6.24% under TSP and do not
have budget head 789 for SCSP.

that 'Odisha Girl Incentive Programme (OGIP)' will

continue as a top up scholarship to ST and SC Girls at
the secondary school level. However this programme
is closing on July 2016.

Budget Allocation for STs and SCs

Budget for SC & ST Development Department as Percent
of GSDP and State Budget
3.24

SCSP and TSP as percentage of total state plan

22.53

20.7

20.99

16.15

15.36

15.77

19.68
14.59

2013-14 (AE)

2014-15 (AE)

2015-16 (RE)

2016-17 (BE)

3.02
2.82
2.30

0.67

0.63

0.69

2013-14 (AE)

2014-15 (AE)

2015-16(RE)

% GSDP

0.74

% of SCSP

% of TSP

2016-17(BE)

% of State Budget

While inclusion was one of the pillars of both the 11th as well as the 12th Five Year Plans, for the inclusive development
of the State, holistic development of the STs and SCs is very much essential. In Odisha, the SCs and STs constitute
around 40 percent (SC -17.13 and ST 22.85%). Apart from ST and SC development department budget, separate
strategies in the form of Scheduled Caste Sub Plan (SCSP) and Scheduled Tribe Sub Plan(TSP) has been devised to
earmark state plan fund as per the proportion of SC and ST population across the departmental budgets of the state
government. The objectives of these two sub plans are to channelize the resources and spending in proportionate to their
population and accelerate the pace of development of these communities.
Budget 2016-17 shows that the SCs & STs of the state are getting a raw deal from the government while it comes to the
allocation of funds under SCSP and TSP. The norms are not followed. The 2016-17 budget estimates has allocated only
19.68% of the fund towards TSP whereas the norm pronounces to be 22.85%. Likewise the SCs receive only 14.59%
fund under SCSP against 17.13%.
17

Value for Money: an analysis of State Budget 2016-17

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In order to understand the state governments priority in implementing SCSP and TSP an analysis of key welfare
departments, those are directly responsible towards the development of SCs and STs indicate that departments like
Panchayati Raj and Women & Child Development have adhered to the norms and shown departmental priority toward
SCs and STs. While departments like Agriculture, Health & Family Welfare, Rural Development and School & Mass
Education have allocated less. Interestingly the nodal department for SCSP and TSP has been allocating less than 10%
under TSP and it does not have a separate minor head 789 for SCSP. The department wise SCSP and TSP allocation has
been given below.
Percentage of SCSP and TSP allocation of key departments in budget estimate 2016-17

15.06
15.84

19.96

12.65

15.06

H&FW

17.51

14.63
9.35

Agriculture

24.14

22.82

22.63

21.44

6.24

Rural Development

S&ME

% of SCSP

SC,ST,OBC and Minority

W & CD

Panchayati Raj

% of TSP

Status of SCSP and TSP across Departments in budget 2016-17

Departments
Agriculture Department
Commerce Department
Co-oparation Department
Department Of Energy
Department Of Public Enterprises
Employment And Technical Education
& Training Dept.
Excise Department
Finance Department
Fisheries And Animal Resource Development Dept.
Food Suplies And Consumer Welfare Dept.
Forest And Environment Department
General Administration Department
Health & Family Welfare Department
Higher Education Department
Home Department
Housing &urban Development Dept.
Industries Department
Information & Public Relation Dept.
Information Technology Department
Labour & Employment Department
Law Department
Micro, Small & Medium Enterprises Dept.
Orissa Legislative Assembly
Panchyat Raj
Parliamentary Affairs
18

Dept Plan

SCSP(789) % of SCSP TSP(796) % of TSP

3059.71
15.6
1719.83
1583.51
2
426.77

484.56
0
254.38
330.77
0
61.79

15.84
0
14.79
20.89
0
14.48

655.9
0
344.16
335.6
0
74.58

21.44
0
20.01
21.19
0
17.48

5
0
349.4
67.19
231.12
104.86
2830.3
957.7
273.89
1587.99
90.27
18
127.19
16.16
33.67
54.05
0
5380.59
5.04

0
0
63.12
1.21
39.38
0
426.32
92.25
39.83
253.48
0
1.19
5.27
0.18
0
0.38
0
1073.73
0

0
0
18.06
1.8
17.04
0
15.06
9.63
14.54
15.96
0
6.6
4.14
1.13
0
0.69
0
19.96
0

0
0
65.4
1.43
52.76
0
626.53
98.63
57.37
345.56
0.28
1.61
3.95
1.56
0
0.48
0
1299.1
0

0
0
18.72
2.13
22.83
0
22.14
10.3
20.95
21.76
0.31
8.93
3.11
9.63
0
0.89
0
24.14
0

Value for Money: an analysis of State Budget 2016-17

Planning And Coordinating Department

Public Grievances And Pension Admin
Administration Dept.
Revenue And Disaster Management Dept.
Rural Development Department
School And Mass Education
Science And Technology Department
Sports And Youth Services Department
St, Sc And Minorities & Obc Welfare Dept.
Steel And Mines Department
Textile And Handloom Department
Tourism And Culture Department
Transport Department
Water Resources Department
Women & Child Development Dept.
Works Department
Department Of Social Security &
Empowerment Of Persons With Disability
Total

www.obac.in

775.85
775.85

54.02
0

6.96
0

118.41
0

15.26
0

775.06
5198.23
4564.33
49.65
56.6
1842.91
36.96
165.4
201.78
322.09
6000.6
2768.3
2921.18
1537.39

123.36
485.87
667.75
4.33
4
0
7.03
9.01
0
3.6
1069.33
484.73
549.85
255.68

15.92
9.35
14.63
8.72
7.07
0
19.02
5.45
0
1.12
17.82
17.51
18.82
16.63

177.33
657.35
1033.11
6.12
6
115.04
15.46
11.96
0.35
5.06
1514.37
631.8
632.5
345.92

22.88
12.65
22.63
12.33
10.6
6.24
41.83
7.23
0.17
1.57
25.24
22.82
21.65
22.5

46932.01

6846.38

14.59

9235.66

19.68

Source: Demand For Grants, 2016-17, Goo

19

Value for Money: an analysis of State Budget 2016-17

www.obac.in

7. Women
Key Observations

Rs 8.35 Cr is allocated for construction of working

women hostel in industrial town.

Budget 2016-17 announced to bring a Gender Budget
For the first time the state has allocated a fund of Rs 4

Statement (GBS) covering both Part-A (schemes in

which 100% provision is for women) and Part-B
(where the allocations for women constitute at least
30% of the provision) in the expanded version of
Budget at a Glance document. The statement will
capture the quantum of provisions made towards
women.

An amount of Rs 1 cr. is allocated towards providing

Rs 2 Cr. is allocated for the new scheme Biju Kanya

temporary shelter for the women devotees (Habisiali)

at Puri.

Cr for the welfare of the transgenders.

Special programme for promotion of Gender Friendly

Tools for Farm Women in Odisha

Ratna Yajona. This is to be launched in three districts

for promoting equal opportunity, eliminating
discrimination and ensuring empowerment through
changes in the societal attitudes.
Table 7.1: Outlay for Some key schemes for protection of women under W&CD Department (Rs in Cr)

Heads of Account
1180-Rehabilitation of Distressed
Women
2393-State Commission for Women
2395-Mahila and Sishu Desks
2679-Financial Assistance and
support services to victims of rape
78354-Protection of Women from
domestic violence
78355-Functioning of Gender Cell
1606-Construction of Working
Women's Hostel
2892-Women Hostel for PWD
2893-Incentive for marriage between
PWDs and Normal person
Total

2012-13

2013-14

2014-15

2015-16

2015-16 RE 2016-17 BE

0.03

0.03

0.03

0.03

0.03

0.03

1.19
0.01
6.00

1.69
0.01
3.00

2.00
0.01
0.00

2.15
0.01
0.00

2.15
0.01
0.00

2.40
0.00
0.00

0.25

0.25

0.25

0.25

0.25

0.20

0.20
0.00

0.00
2.00

0.10
11.20

0.10
4.50

0.10
4.50

0.15
8.35

0.00
0.00

0.00
0.00

3.00
0.97

1.50
2.00

2.00
2.00

0.00
0.00

7.68

6.98

17.56

10.54

11.04

11.13

Source: compiled from detail demand for grants 2012-13 to 2016-17

There has been a constant rise in crime against women in Odisha according to white paper data. In all-India basis, cases
of rape in the state contribute to 5.8 %, kidnapping of women and girls cases to 3.5% of the total cases in the country as
per the NCRB 2012. Similarly, the dowry related cases have been increasing and there were 4898 cases in 2011, the
dowry deaths in the state are 6.5 % of the cases registered in the country (NCRB 2012).
There are certain important schemes which are implemented by Women & Child Development department for
providing protection and supporting services for women. Some of the schemes which GoO started but discontinued
within a period of one year or have reduced the allocation over the years. It is good that in 20106-17 budget, the state
government has made provision for working women hostel which will definitely benefit the working women.

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Gender Budget Statement: Addressing gender inequality

Gender inequality poses a significant development challenge not only in Odisha but in the county as a whole. The move
from welfare based to empowerment approach has remained in the area of the rhetoric. As a response to these
challenges, India and few states have already adopted 'Gender-Responsive Budgeting' (GRB). Since last three years,
the state has been preparing Gender Budget Statement with 100 percent women centric schemes.
Proper implementation of GRB needs a Gender Budget Cell which will coordinate the process and procedure within the
departments for effective implementation of GRB. There is also a requirement of sex-disaggregated data base for
capturing the part-B of the GBS. Capacity building of the officials with IEC materials is highly needed. To come up with
a proper Gender Budget Statement the state need to allocate resource for it.
Again, GBS only represents a small part in the overall framework of the Gender Responsive Budgeting. To make the
gender budgeting initiatives more meaningful, schemes need to be formulated taking into account the grass root
realities and the process of continuous assessment and audit.

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Value for Money: an analysis of State Budget 2016-17

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8. Rural Development: an analysis of

Rural Development & Panchayatiraj Department
As popular saying, "India lives in villages". So does
Odisha. Over 85 percent of State's total population lives
in rural areas (Census 2011). According to the latest
released data on poverty (Planning Commission, 23rd
July 2013), Odisha recorded the sharpest decline in
poverty level between 2004-05 and 2011-12, followed by
Bihar and Rajasthan. However, 32.6 percent of Odisha's
total population still lives Below the Poverty Line (BPL),
remaining well above the national average of 21.9
percent. The major chunk of this BPL population is living
in remote villages of Odisha.
Key Observations
Budget for Rural Development Department (DoRD)

has decreased from Rs. 6705.47 Cr in 2015-16 RE to

Rs. 6705.47 Cr in 2016-17. It accounts 6.90 percent of
the Total State Budget in 2016-17 which was 7.94
percent in 2015-16 RE.
Budget for Panchayati Raj Department (DoPR) has

Bridges has decreased manifold from Rs. 220 Cr in

2015-16 RE to Rs. 80 Cr in 2016-17.
Budget under Biju Setu Yojana has got a significant

rise from Rs. 227.51 Cr. in 2015-16 RE to Rs. 404.60

Cr. in 2016-17 BE.
Pradhan Mantri Awas Yojana

(PMAY) and Biju

Pucca Ghara Yojana (BPGY) are two flagship
programmes under the housing scheme of the State.
Budget PMAY has decreased from Rs. 1875.61 Cr. in
2015-16 RE to Rs. 1688.26 Cr in 2016-17. On the
other hand, budget for BPGY has increased many fold
from Rs. 150 Cr in 2015-16 RE to Rs. 700 Cr in 201617 BE.

Budget for Gopabandhu Gramin Yojana (GGY) has

increased from Rs. 650 Cr. in 2015-16 (RE) to Rs.

1000 Cr. in 2016-17 (BE). Taking into account the
delinked BRGF from central assistance, now GGY
will have to provide the benefits of the scheme to all
30 districts (previously it was 10 districts) .

remained almost same as in 2015-16 RE. It accounts

8.99 percent of the Total State Budget in 2016-17
which was 9.97 percent in 2015-16 RE. DoPR shares
2.21 percent of GSDP in 2016-17 which was 2.42 in
2015-16.

Bbudget under NRLM has reduced form Rs. Rs.

State has allocated an amount Rs.2300 Cr. under

Contrast to the State Government's announcement to

PMGSY for construction of 3200 kms of road in 201617.

Budget for Rural Infrastructure Development Fund

increase the man days under MGNREGA in droughthit-areas to 200 days, the budget under this scheme
has decreased from Rs. 2336.42 Cr in 2015-16 RE to
Rs. 1959.89 Cr in 2016-17.

(RIDF) has decreased from Rs. 1102 Cr in 2015-16

RE to Rs. 950 Cr in 2016-17.

Gram Sabha Sashaktikaran Karyakram (GSSK) has

Budget under Completion of Incomplete Roads and

not been allocated any budget since State Budget

2015-16

398.15 Cr in 2015-16 RE to Rs. 241.70 Cr. in 2016-17

BE

9.97
6.20

5.31

5.29

5.94

0.82

1.01

0.98

1.22

1.55

2010-11

2011-12

2012-13

2013-14

2014-15 (AE)

4.45

As % of GSDP

8.99

2.42

2.21

2015-16 (RE)

2016-17 (BE)

As % of Total Budget

Budget for Panchayati Raj Department (DoPR) in 2016-17 (Rs 8458.95 Cr) has remained almost same as compared to
2015-16 RE (Rs 8419.85 Cr). The department implements important schemes like Indira Awas Yojana (IAY) which is
recently renamed as Pradhan Mantri Awas Yojana (PMAY), Mahatma Gandhi National Rural Employment Guarantee
Act (MGNREGA), National Rural Livelihood Mission (NRLM) etc.
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Value for Money: an analysis of State Budget 2016-17

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Table 8.1: Budget for Schemes / programmes under Rural Connectivity (In Rs Cr)

Schemes
2161Rural Infrastructure Development Fund (RIDF)
1077- Pradhan Mantri Gram Sadak Yojana (PMGSY)
37158- Completion of Incomplete Roads
37257-Biju Setu Yojana

2012-13

2013-14

184.69
90.00
27.40
135.78

207.53
74.00
44.77
172.10

2014-15 2015-16 RE

2016-17

451.81
1151.50
70.22
186.95

950.00
2300.00
80
400.00

1102.00
2068.33
220
230.00

Source: Demand for Grants, GoO

Rural Infrastructure Development Fund (RIDF) and Pradhan Mantri Gram Sadak Yojana (PMGSY) constitute the
major share of the fund towards rural connectivity. Budget for PMGSY has been increased marginally in 2016-17.
Under PMGSY, state targets for construction of 3200 kms of roads in 2016-17. However, budget for RIDF has
decreased from Rs. 1102 Cr in 2015-16 RE to Rs. 950 Cr in 2016-17 BE.
Table 8.2: Physical and Financial Achievement under the major Schemes of Rural Connectivity (Outcome Budget
DoRD 2015-16)
Schemes

Target for
2013-14

Physical
Achievement
till 3/2014

Roads Bridges

Roads Bridges

Financial
Achievement
till 3/2014

More than 98%

of the available
fund utilized

Target for
2014-15

Achievement
till 2/2015
till 2/2015

Roads Bridges

Roads Bridges

2161Rural
Infrastructure
Development
Fund (RIDF)

35

26

PMGSY Bridges
/ 1077- Pradhan
Mantri Gram
Sadak Yojana
(PMGSY)

34

31

37158Completion of
Incomplete Roads

151

19

151

19

Around 91 %
of the available
fund utilized

100

37257-Biju
Setu Yojana

125

107

Around 99 %
of the available
fund utilized

13

40

Construction of
4500 km of
roads & bridges

Financial
Achievement

Around 70% of
the available
fund utilized

3842.69

Around 64% of
the available
fund utilized

14

Around 72% of
the available
fund utilized

120

11

Around 89% of
the available
fund utilized

Biju Setu Yojana needs a boost to achieve the target:

The financial outlay under Biju Setu Yojana has been appreciably increased from Rs. 230 Cr. in 2015-16 RE to Rs. 400
Cr. in 2016-17 BE. During 2013-14 around 99 percent fund under this scheme was utilized and 107 bridges out of
targeted 125 bridges were completed. However financial utilization decreased to around 89 percent in 2014-15 and
construction of only 11 bridges out of targeted 120 bridges were completed.

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Value for Money: an analysis of State Budget 2016-17

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Table 8.3: Budget for major schemes under Panchayatiraj Department (In Rs Cr)

Schemes

2014-15

2015-16 RE

2016-17 BE

0685-Indira Awas Yojana (IAY)/ Prime Minister Awas Yojana

1855-Gopabandhu Grameen Yojana
1872-National Rural Employment Guarantee Scheme
2112-Mo Kudia
3014 - Biju Pucca Ghara
2825-Gram Sabha Sashaktikaran Karyakrama
2950-NATIONAL RURAL LIVELIHOOD MISSION(NRLM)

886.96
225.00
1035.30
330.11

1875.61
650.00
2336.42
0
150.00
0.00
398.15

1688.26
1000.00
1659.89
0
700.00
0.00
241.70

2.50
135.91

Source: Compilation from Economic Survey and Demand for Grants, GoO

Housing Schemes much behind the target in Odisha:

The two flagship programmes under the housing scheme in Odisha are centrally sponsored Prime Minister Awas Yojana
(PMAY), previously known as Indira Awas Yojana and State's own Biju Pucca Ghara Yojana (BPGY), previously
known as Mo Kudia Yojana.
Budget for PMAY has been decreased from Rs. 1875.61 Cr in 2015-16 RE to Rs. 1688.26 Cr in 2016-17. However,
budget for BPGY has been increased many fold from Rs. 150 Cr in 2015-16 RE to Rs. 700 Cr in 2016-17 BE. Out of the
target set for completion of 93,234 houses in 2015-16, till October 2015 only 30,263 houses were completed under
BPGY. The BPGY is an election promise of the present rulling party as per which all kutcha houses will be converted to
pucca houses within a period of five years.
Gopabandhu Gramin Yojana (GGY) will compensate the benefits under BRGF:
To redress regional imbalances in development, 20 identified backward districts of Odisha were being supported
through Backward Region Grant Fund (BRGF), a Central scheme, for supplementing and converging existing
developmental inflows. Aligning to BRGF, the State launched Gopabandhu Gramin Yojana (GGY) to provide
additional developmental assistance to the targeted 10 districts of Odisha not covered under BRGF. However, after the
implementation of 14th Finance Commission's Recommendation, BRGF has been delinked from the centre's support
during 2015-16. Accordingly the Budget for this scheme has also shown a major increase from Rs. 225 Cr in 2014-15 to
Rs 650 Cr in 2015-16 RE. This has further increased to Rs. 1000 Cr in 2016-17 BE.
NRLM and MGNREGA:
Mismatch between claims and allocation: Budget for National Rural Livelihood Mission (NRLM) has decreased from
Rs. 398.15 Cr in 2015-16 RE to Rs. 241.70 Cr in 2016-17 BE. Again, the percentage of utilization under the available
fund was around 51 percent in 2013-14 and around 40 percent in 2014-15 (Economic Survey, 2015-16). The above
situation contradicts to State's commitment toward reinforcing rural livelihood opportunities.
MGNREGA is a key programme to address the unemployment issues of the rural masses. Budget for MGNREGA has
reduced from Rs. 2336.42 Cr in 2015-16 RE to Rs. 1659.89 Cr in 2016-17. The number of man days under MGNREGA
has reduced from 711.83 lakh in 2013-14 to 534.75 lakh in 2014-15 (Economic Survey 2015-16). However,
considering State Government announcement to increase the man days under MGNREGA in drought-hit-areas to 200
days, a quantum jump was required in outlay under MGNREGA. Looking into the proposed outlay under this scheme,
Government's claim to emphasize livelihood opportunities seems concerning.
No allocation under Gram Sabha Sasaktikaran Karyakram (GSSK) for consecutive two years:
In order to mobilize the rural people to participate in the Palli Sabha and Gram Sabha, Government of Odisha in 2012
launched a new initiative called Gram Sabha Sashaktikaran Karyakram (GSSK). An amount of Rs 2.5 Cr was allocated
under this head during 2014-15. However, for the past two financial years this head has not been allocated any fund.

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Value for Money: an analysis of State Budget 2016-17

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9. Agriculture and Livelihoods

In the aftermath growing number of cases of farmers'
suicides in the state in 2015 and prior to Agriculture
Budget 2016-17, Odisha government has taken a series of
decisions for the benefit of the farming sector and
farmers. They are amendment of the Orissa land reforms
act, change of nomenclature of the state agriculture
department to Department of Agriculture and Farmers
Empowerment, constitution of Agriculture Cabinet.
Since 2013-14, a separate agriculture budget has been
presented which includes the budget for Agriculture
Department, Water Resources Department, Fisheries and
Animal Resources and Development Department, Cooperation Department and Energy Department. These
measures are expected to give a focused and holistic
attention to the issues of the farming sector and farmers.
Key Observations

A token amount of Rs.0.01lakh each for Krushak Haat

and Agro-Industrial Estate has been allocated in the

budget 2016-17.These schemes were started in 201314 in order to provide facilities for value addition and
forward linkage besides arresting post harvest losses.
However, these schemes have not received priorities
in State budget 2016-17.
Budget 2016-17 has allocated Rs 16.67 Cr for

Paramparagat Krishi Vikas Yojana (PKVY), a central

sponsored programme, focuses on organic farming.
Besides, Rs 40 lakh has been allocated for Organic
Farming for Horticulture (budget head:2958) along
with a token amount of Rs.0.01 lakh for Organic
Farming (agriculture-2877). Looking at the growing
importance of organic farming, State might consider
to allocate more fund for the organic farming in
Agriculture department.

The share of the agricultural budget as percentage of

State's total budge has been increased marginally from

12.6 in 2015-16 RE to 14.3 percent in 2016-17.
Similarly as percentage of GDP, it has increased from
3.1 percent in 2015-16 RE to 3.5 percent in 2016-17.

New Initiatives of 2016-17 Agriculture Budget

Special Programme for Millet in Tribal Areas
Support to Integrated Farming System in Tribal

The agriculture department is basically looks after the

input management, extension , capacity building and

plays a substantive role in creating an enabling
environment for enhancing farm income and make
agriculture more profitable, sustainable and resilient.
Though, budget for agriculture has been increased by
13 percent in 2016-17, it misses a road map for
enhancing the income and reducing the indebtedness
of the farmers.

Districts
Development of Agriculture in collaboration with

International Institutions for extension programme

has been provided Rs.25 crore
Promotion of Gender Friendly Tools for Farm Women

in Odisha
Rs.5 crore has been provided to support to Farmer

Recently, the government of Odisha has declared to

start the process of identifying the share croppers and

tenants as part of its promise to amend the Orissa Land
Reforms Act 1960. Budget 2016-17 has not allocated
any budget for starting the census of share croppers
and tenants. Therefore, to kick start the census of
farmers' categories, budget is required.
Budget 2016-17 has allocated

Rs 300 Cr as state
premium for Pradhanmantri Fasal Bima Yojana
(PFBY) and Rs 800 Cr for the crop insurance.
However, in the absence of the data base of share
croppers and tenant farmers, it can not be argued that
the enhanced allocation for insurance will reach these
categories of farmers as unit of insurance for Paddy is
Gram Panchayat (GP) and Block for other crops.

Producers' Organization
Establishment of a floriculture market in Public

private partnership (PPP) mode

Proposed amount of Rs. 5 Cr to set up a Company for

marketing of fruits vegetables

Rs.10 crore has been provided for Agri start-up to

promote agri-entrepreneurship

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Value for Money: an analysis of State Budget 2016-17

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Table 9.1: Budget for Agriculture (Major Departments) in Odisha (In Rs Cr)

Heads of Account

2012-13

2013-14

2014-15

2015-16(RE)

2016-17(BE)

Agriculture Department
Co-oparation Department
Energy(2813-agriculture feeder in
high agriculture load area )
Fisheries and Animal Resource
Development Dept.
Water Resources Department
Total Agriculture Budget

1560.25
581.91
0.00

1934.73
684.70
100.99

2656.91
662.508
50

3232.51
807.6947
0

3646.41
1823.23
0

303.56

392.52

478.43

592.42

683.495

3103.13
5548.86

3676.99
6789.93

4290.63
8138.48

6043.35
10675.97

7261.57
13414.7069

Source: Compiled from Demand for Grants, GoO

Fig 9.1: Share of Agriculture budget in State Budget and GSDP

16.0

14.3

14.0
12.0

11.7

12.6

12.1

Share of agriculture budget as % of

total budget

10.0
9.6

8.0
6.0
4.0

2.2

2.5

2.6

2012-13

2013-14

2014-15

3.1

3.5

Share of agriculture budget as % of

GSDP

2.0
0.0
2015-16 (RE) 2016-17

Budget for Agriculture and Farmers' Empowerment:

The agriculture department is basically looks after the input management, extension , capacity building and plays a
substantive role in creating an enabling environment for enhancing farm income and make agriculture more profitable,
sustainable and resilient. Though, budget for agriculture has been increased by 13 percent in 2016-17, it misses a road
map for enhancing the income and reducing the indebtedness of the farmers.
There is no mention of addressing the distress of the farmers due to institutional and operational deficits. As per the 70th
round NSSO (July 2012-June 2013), in Odisha, 57.5 percent of agriculture households is indebted. The average amount
of outstanding loan in Odisha is Rs 28,200.
The government has declared to amend the tenancy reforms act and for that a data base for the share croppers and
tenants is required however, no allocation had been main to initiate census for share croppers and tenants.
Budget for Department of Co-operation:
Provision of credit to the farmers, executing the crop insurance and providing market support including the storage
facilities for the agricultural produce are the responsibilities of the co-operation department. Budget 2016-17 has seen
a huge jump in allocation from Rs 807 Cr in 2015-16 RE to Rs 1823 Cr in 2016-17. This jump is largely due to allocation
26

Value for Money: an analysis of State Budget 2016-17

www.obac.in

of Rs 300 Cr as state premium for Pradhanmantri Fasal Bima Yojana (PFBY), Rs 800 Cr for the crop insurance and Rs
310 Cr for interest subvention to Co-op. Banks/ Primary Agricultural Societies (PACs) for providing Crop Loan to the
Farmer. Besides, Rs 100 Cr has been provided for the warehouse infrastructure fund and Rs 100 Cr for the construction
of the godowns.
Fig 9.2: Share of Department of Cooperation budget in State Budget and GSDP
2.50
1.94

2.00
1.50

1.23

1.00
0.50

Share of Co-operation Department

budget as % of total budget

1.22
0.78

0.95

0.23

0.25

0.21

0.23

2012-13

2013-14

2014-15

2015-16 RE

0.48

Share of Co-operation Department

budget as % of GSDP

0.00
2016-17

In Odisha, 57.5 percent of rural households are agricultural households. In spite of the higher allocation of resources

in the state budget for the insurance under different schemes, the benefits may not reach to the needy farmers and in
time because of several reasons like lack of awareness, improper coverage and reach and complicated procedures.
The Unit of Insurance for Paddy is Gram Panchayat (GP) and Block for other crops. In the absence of the data base of

share croppers and tenant farmers, it cann't be argued that the enhanced allocation for insurance will reach these
categories of farmers.
The insurance schemes and credit schemes is related as insurance is compulsory for loanee-farmers and optional for

non-loanee farmers. This procedure automatically deprives the farmers having not taken loans.
The benefit of interest subvention may not reach the needy farmers like share croppers and tenants in the absence of

financial inclusion. As per the findings of the 70th round of NSSO, the share of non-institutional agencies in lending
in rural Odisha is 27 percent. To avail the benefit of the interest subsidies, farmers like share croppers, small and
marginal farmers need to get the access of the financial services of the institutional agencies.
To reduce the distress sale of paddy in Odisha and to implement the minimum support price (MSP) policy

effectively, timely completion of construction of godowns and enhancing the geographical coverage of godowns is
the need of the hour.
Budget for Water Resources Department:
Irrigation plays a critical role for the sustainable development of agriculture. Public investment in agriculture is largely
meant as investment on irrigation. For Irrigation purposes, major, medium,minor, command area development and
flood control & drainage programmes are undertaken. Understanding the importance of the irrigation in Odisha, budget
2016-17 has proposed to bring additional 10 lakh hecatre under irrigation by the end of 2019 and to cover additional
2.57 lakh hectares during 2016-17. The share of the budget for the water resources is the largest in the agriculture
budget. In 2016-17 the share is 54 percent which is actually reduced from 56.6 percent in 2015-16.

27

Value for Money: an analysis of State Budget 2016-17

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Fig 9.3: Share of Water Resources Department budget in State Budget and GSDP
9.0
7.7

8.0
6.6

6.6

7.0

7.1

6.0
5.0

Share of water resources as % of

total budget

5.1

4.0

Share of water resources as % of

GSDP

3.0
2.0

1.9

1.7

1.2

1.3

1.4

2012-13

2013-14

2014-15

1.0
0.0
2015-16 (RE) 2016-17

Out of total cultivable land of 61.65 lakh hectare of the state, the irrigation coverage is 54% which is 33 lakh hectare as
on December 2014. In spite of the growth of budget for the Water Resources Department in last three years, irrigation
coverage is not geographically inclusive. For example, a master plan was launched during 2005-06 for providing
irrigation facilities to at least 35% of the cultivable area of every block during 12th Plan Period (2012-2017).
Accordingly,198 blocks out of 314 blocks in the state were identified in having less than 35% irrigation facilities.
However, by the end of December, 2014, 139 deficit blocks in which 35% irrigation facilitieswas not provided. The
below graph depicts that in the tribal dominated districts like Keonjhar, Bolangir, Malkanagiri, Sundargarh
Nabarangpur and coastal districts like Jagatsinghpur, the master plan is a big failure.

targeted irrigation potential 35% in deficit blocks in 2004-05

average % of irrigation potential created in deficit blocks as on 2014-15

28

Jharsuguda

Sundargarh

Malkangiri

Jagatsinghpur

Nabarangapur

Bolangir

Sambalpur

Kandhamal

Keonjhar

Bargarh

Puri

Cuttack

Jajpur

Kendrapara

Deogarh

Angul

Nayagarh

Khurda

Sonepur

Gajapati

Koraput

Nuapada

Ganjam

Mayurbhanj

Bhadrak

Rayagada

Kalahandi

Balasore

Boudh

Dhenkanal

Process of the Master Plan to irrigate at least 35% in deficit blocks in Odisha between 2004-05 to 2014-15

Value for Money: an analysis of State Budget 2016-17

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Budget for National Rural

Health Mission in Odisha

Budget for SC subplan and

Tribal subplan in Odisha

Citizen's Report on access to

Govt. entitlements in KBK
Districts

Development Spending for

Primitive Tribals

District Budget for

Elementary Education

Financing for Children's

Development in Odisha

Financing Right to Education

Identify Suitable Strategy for

Development Sectors in
Twelfth Five Year Plan,
Odisha

Juanga Janajati Bikasa

Lakhyare Gosti Yojana O
Budget Prastuthi

Odisha State Budget 2012-13

(A Response)

Odisha State Budget 2013-14

(A Response)

Know Your Budget And Its

Process

Use of Community Radio in

Budget Advocacy by CYSD

Prasikshakanka Pustika Rajya

Budget Ku Janiba

Saheti Prasnara Uttara

OBAC Publications

Agriculture & Allied Sectors

in Five year plans of Odisha

OBAC

Odisha Budget and

Accountability Centre

OBAC a constituent unit of CYSD, is working on

policy and budget research, demystification of the
budget and its process and evidence based advocacy
for pro-poor budgeting and policy practices in the
state. The centre promotes accountability tools like
community score card, citizen report card, social
audit, expenditure tracking, and community led
monitoring for enhancing the effectiveness of public
service delivery and encourage participation in
decentralized planning and budgeting in Odisha.
The key areas of the centre are:
Macro State Budget Analysis
Social Sector Budget Analysis (Health, Education,

ICDS, Water & Sanitation)

Budget for Disadvantaged groups (Women, ST &

SC Development)
Agriculture and Livelihoods
Decentralized Planning & Budgeting
Citizen Led Accountability of basic services (PDS,

ICDS, Maternal Health, Water & sanitation etc)

Enable-Empower-Include...

Centre for Youth and Social Development

E-1, Institutional Area, Gangadhar Meher Marg,
PO. RRL, Bhubaneswar - 751 013, Odisha, India
Tel: +91 674 2300983, 2301725
e-mail: cysd@cysd.org / info@cysd.org

www.obac.in
www.cysd.org

Design: MMA INFORMATION SYSTEMS

Prepared by:
Odisha Budget and Accountability Centre (OBAC)