Action plan niiti aayog

This is the
DRAFT Three Year Action Agenda,
2017-18 to 2019-20, circulated to the Governing Council of
the NITI Aayog on 23rd April, 2017.
Work on the Vision & Strategy document and the Action Agenda document
has progressed in parallel. The latter, thus, forms an integral part of
the former. However, the Action Agenda has been fast tracked recognizing
its immediate policy relevance.

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List of Boxes
Box 11-1: Service Delivery through e-Mitra in Rajasthan 86
Box 18-1: Urban Land Ceilings and Regulations Act – A Case of Unintended Harmful Effects of Regulation 119
Box 18-2: Past Entry Restrictions on Digital Mobile Payments in India 121
Box 18-3: Anti-competitive Electricity Regulations Acting as a Barrier to “Make in India” 122
Box 21-1: Specific Health Goals to be Achieved by the Year 2020 141
Box 22-1: Kanyashree Prakalpa Scheme, 2013 151
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PoS Point-of-Sale
POSOCO Power System Operation Corporation Limited
PPP Public Private Partnership
PPP PMU PPP Project Monitoring Unit
PPP PRU PPP Performance Review Unit
PRAGATI Pro-Active Governance and Timely Implementation
PSB Public Sector Bank
PSC Production Sharing Contract
PSE Public Sector Enterprise
PwDs Persons with Disabilities
QP Qualification Packs
RD Research and Development
RM Renovation and Modernization
RADMS Road Accident Data Management System
RBI Reserve Bank of India
RBO River Basin Organizations
RCEP Regional Comprehensive Economic Partnership
RCI Rehabilitation Council of India
RE Revised Estimate
REMC Renewable Energy Management Centres
RFID Radio Frequency Identification Device
RFP Request for Proposal
RFQ Request for Qualification
ROFR Right of First Refusal
RPL Recognition of Prior Learning
RPO Renewable Purchase Obligations
RRR Repair, Renovation and Restoration
RRTC Regional Resource and Training Centres
RRTS Regional Rapid Transit System
RTE Right of Children to Free and Compulsory Education
RUSA Rashtriya Uchchatar Shiksha Abhiyan
ST Science and Technology
S.U.R.E Specifications for Urban Roads Execution
SAAP State Annual Action Plans
SANKALP Skill Acquisition and Knowledge Awareness for Livelihood Promotion Programme
SARDP-NE Special Accelerated Road Development Project
SBM Swachh Bharat Mission
SC Scheduled Caste
SCB Scheduled Commercial Banks
SCCL Singareni Collieries Company Limited
SCSP Scheduled Caste Sub-Plan
SEBI Securities and Exchange Board of India
SECC Socio-Economic Caste Census
SECI Solar Energy Corporation of India Limited
SEP Self-Employment Programmes
xii

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`QQQ

USTR United States Trade Representative
UT Union Territory
VAT Value Added Tax
VRDL Viral Research Diagnostic Lab
VGF Viability Gap Funding
WASH Water, Sanitation and Hygiene
WECI Waste to Energy Corporation of India
WEF World Economic Forum
WHO World Health Organization
WIPO World Intellectual Property Organization
WPI Wholesale Price Index
WRIS Water Resource Information System
WTO World Trade Organization
xiv

Chapter 1. Three Year Action Agenda: An Overview
VISION AND CHALLENGES
1.1. The objective of eliminating poverty in all its dimensions such that every citizen has access to a minimum standard
of food, education, health, clothing, shelter, transportation and energy has been at the heart of India’s
development efforts since Independence. The extremely low level of per-capita income and widespread poverty
made it impossible for us to achieve this objective without growing the economy. Tax revenues were so meagre and
the economy’s needs so vast that no serious dent into poverty could be made through redistribution alone. While
we substantially improved economic performance during the first four decades of independence over that during
the preceding fifty years, growth remained below 4%, which was woefully inadequate for a meaningful decline in
poverty.
1.2. But the signs of change began to emerge during the second half of the 1980s, with 1991 proving to be a turning
point. The reforms that followed first under Prime Minister Narasimha Rao and then under Prime Minister Atal
Bihari Vajpayee placed India first on a 6% growth trajectory and then, beginning in 2003-04, on an 8% plus
trajectory. Rising wages accompanied faster growth and pulled many out of abject poverty. Growth also yielded
handsome gains in tax revenues, which helped expand social spending manifold, reinforcing the direct effect of
growth on poverty reduction.
1.3. Although a combination of global economic developments and domestic policy choices led to a dip in the growth
rate to 5.6% in 2012-13, quick corrective action in 2014, followed by sustained policy reforms, has helped the
economy sustain 7% plus growth during the three years ending on 31 March 2017. Indeed, there are good
prospects that we will return to the 8% plus growth trajectory in another two to three years if not sooner.
Therefore, the chances of a massive cut in the poverty rate in the upcoming decade are excellent.
1.4. India’s 125 Crore citizens, the majority of which consists of the youth, increasingly aspire for greater
empowerment and a better quality of life. It is in recognition of these joint aspirations that the Prime Minister has
called for the transformation of India with the “Participation of All and Development of All” or “Sabka Saath,
Sabka Vikas.”
1.5. In this backdrop, the present document charts an ambitious, transformational yet achievable Action Agenda for
the government during 2017-18 to 2019-20, that constitute the last three years of the Fourteenth Finance
Commission. The Agenda is a part of a longer-term Fifteen-year Vision and Seven-year Strategy outlined in a
separate document. The Action Agenda proposes a path to achieve all-round development of India and its people.
A brief outline of the subjects covered in the document is provided below.
Part I: Medium-term Revenue and Expenditure Framework
1.6. The most direct and visible policy tool of the government is the budget. The allocation of expenditure needs to be
aligned to the government’s overall objectives. Accordingly, chapters 2-4 in Part I present expenditure proposals
for three years based on revenue forecasts. This exercise has been limited to the Central government.
1.7. During the past three years (2014-15 to 2016-17), the government has made significant progress towards
implementing a sound and stable fiscal strategy. The fiscal deficit has been cut from 4.5% of the Gross Domestic
Product (GDP) in 2013-14 to 3.5% in 2016-17 while the revenue deficit has been reduced from 3.2% to 2.1% of
the GDP over the same period.1
It is proposed that the government should capitalize on this progress by
maintaining its course during the next three years. Under the proposed fiscal framework, the fiscal deficit is to be
reduced to its eventual target of 3% of the GDP under the Fiscal Responsibility and Budget Management (FRBM)
framework by 2018-19, while the revenue deficit is expected to fall to 0.9% of the GDP by 2019-20.
1.8. The Action Agenda proposes linking Central government expenditures to future priorities. It suggests shifting the
composition of expenditures by allocating a larger proportion of additional revenues that become available over
time to high-priority sectors. Under the proposed agenda, the share of non-developmental revenue expenditure in
total revenue expenditure would decline from 47% in 2015-16 to 41% in 2019-20. At the same time, the share of
1

capital expenditure, which is more likely to promote development, would rise significantly. The proposals imply
substantial expansion in expenditures by 2019-20 on education, health, agriculture, rural development, defence,
railways, roads and other categories of capital expenditure.
Part II: Economic Transformations in Major Sectors
1.9. This part includes two chapters, one dealing with agriculture, which is the backbone of the rural economy, and the
other focuses on industry and services in which the key issue is the creation of well-paid jobs.
Agriculture: Doubling Farmers’ Incomes
1.10. Farmers make up nearly half of India’s workforce. Therefore, for India to flourish, its farmers and the farm
economy must prosper. It is against this background that the Prime Minister has called for doubling farmers’
incomes by 2022. To achieve this goal, the Action Agenda outlines a strong programme for agricultural
transformation. It includes numerous measures to raise farm productivity, bring remunerative prices to farmers,
put farmers’ land to productive uses when they are not able to farm it themselves and improve the implementation
of relief measures. Chapters in subsequent parts of the document offer an ambitious agenda for empowering the
rural population through improved road and digital connectivity, access to clean energy, financial inclusion and
“Housing for All.”
1.11. Enhancing agricultural productivity requires of efficiently using inputs, introducing new technologies and shifting
from low to high value commodities. We need to expand the scope of irrigation to increase crop intensity, improve
access to irrigation, enhance the seed replacement rate and encourage the balanced use of fertilizers. Precision
farming and related new technologies, that allow highly efficient farming and conserve resources, must be spread
through appropriate policy interventions. Conditions conducive to shift into high value commodities such as
horticulture, dairying, poultry, piggery, small ruminant husbandry, fisheries and forestry need to be created.
1.12. The reform of the Agricultural Produce Marketing Committees (APMC) Act needs a new lease of life. Farmers
should get genuine rights for direct sales to buyers of all commodities, potential buyers should get the rights to buy
produce directly from farmers, entry of private agricultural markets should be free and an effective legal
framework for contract farming should be established. Minimum Support Prices (MSPs) have distorted cropping
patterns due to their use in certain commodities in selected regions. There has been an excessive focus on the
procurement of wheat, rice and sugarcane at the expense of other crops such as pulses, oilseed and coarse grains.
These distortions have led to the depletion of water resources, soil degradation and deterioration in water quality
in the North-west. At the same time, eastern states, where procurement at the MSP is minimal or non-existent,
have suffered. One measure that can help reduce distortions in the MSP system is the system of “Price Deficiency
Payment.” While MSP may still be used for need-based procurement, under the deficiency payments system, a
subsidy may be provided to farmers on other targeted produce, contingent on prices falling below an MSP-linked
threshold.
1.13. Over the years, landholdings in India have become smaller and fragmented. According to the 2010-11
Agricultural Census, 47% of landholdings had become less than half a hectare in size. These holdings are too
small to support a family of five so that many farmers now seek alternative sources of income. But stringent
tenancy laws in most states have meant that these farmers hesitate to lease the land they leave behind. As a result,
an increasing amount of farmland is being left fallow. The introduction of a modern land-leasing law that balances
and protects the rights of the tenant and landowners would be a potential solution.
1.14. Finally, to alleviate distress in case of natural calamities, the government has recently introduced the Fasal Bima
Yojana. This is an important positive step toward mitigating risk but requires improvement. Capping the subsidy
amount per farm household to a fixed amount and charging the full premium for additional insurance would not
only economize on financial resources but will also be more equitable.
Trade, Industry and Services: Creating Well-Paid Jobs
1.15. Contrary to some assertions that India’s growth has been “jobless,” the Employment Unemployment Surveys
(EUS) of the National Sample Survey Office (NSSO), which till date remain the most reliable sources of
information on India’s employment situation, have consistently reported low and stable rates of unemployment
2

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