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Department of Land Resources
Subiect: --Terms of Reference for-Mid-Term evaluation of National Land
Records Modernization Programme (NLRMP)
It is proposed to take up a mid- term Evaluation of implementation of NLRMP in
the States of Gujarat, Haryana, Kamataka, Madhya Pradesh, West Bengal and Tripura;
one from each of West, North, South, Central,, East and North East regions' The NLRMP
is being implemented since 2008 after merging and rationalizing two preceding Centrally
Sponsored Scheme (CSS), namely Computerization of Land Records (CLR) and
Strengthening of Revenue Administration & Upgradation of Land Records (SRA&ULR).
Although the Programme is under implementation for about six years no study has been
taken up to evaluate the programme so far.
The guidelines of NLRMP require the Department of Land Resources to take up
concurrent and technical evaluation of the programme through reputed organizations such
as the Lal Bahadur Shastri National Academy of Administration (LBSNAA), the National
Institute of Rural Development (NIRD), State Administrative Training Institutes (ATIs)
etc.; hence this proposal is for the mid-term evaluation/study ofthe Programme.
National Land Records Modernization Programme (NLRMP) -Background
Land plays an important role in the lives of the people in both rural and urban
areas. Therefore, it is important that a landholder should have an authentic and tamper
proof record of the land. The Govemment of India initiated two Centrally-sponsored
schemes in the mid-1980 - Computerization of Land Records (CLR) and Strengthening
of Revenue Administration & Upgradation of Land Records (sRA&uLR). These two
schemes were administered up-to 2007-08. The National Land Records Modemization
Programme (NLRMP) is under implementation in the StatesAjTs since 2008-09 after
,".ging and rationalizing of these two schemes. The main objective of the programme is
to rnodirnize the land records system in the country and to build up an integrated land
information management system with up-to-date and real time land records. An effort is
being made to build up land record system through use of modern technology such as
comfuterization of tlie records of rights (RoRs), digitization of maps, integration of
textual & spatial data, survey and resurvey of records, computerization of the registration
process, ..iting-rp modem record rooms & land records management Centres etc. The
major focus oflhe programme is on improvement of citizen services. The ultimate goal of
f.ffnfW is ushering in a system of conclusive titles. The system of conclusive titles is
based on 4 basic piinciples: (i) a single agency to handle land records (including the
maintenance and updating of the textual records, maps, survey and settlement operations,
registration of immovabG property mutations, etc.); (ii) the "mirror" principle, which
(iii) the
sta-tes that, at any given moment, the land records mirror the ground reality;
.,curtain" principie, which refers to the fact that the record of title is a true depiction ofthe
ownership statui, mutation is automatic following registration, there is no need of probing
into past title transactions, and title is a conclusive proof of ownership; and (iv) title
insurance, which refers to the fact that the title is guaranteed for its correctness and the
party concerned is indemnified against any loss arising because of inaccuracy in this
iegard. At the moment, land records in India don't reflect any ofthese principles.
-2Following is an outline of the components and activities being taken
up under the
NLRMP:
l. Computerization of land records
a) Data entry/re-entry/data conversion of all textual records including
mutation records and other land attributes data
b) Digitization of cadastral maps
c) Integration oftextual and spatial data
d) Tehsil, sub-division/district data centers
e)
State-level data centers
Inter-connectivity among revenue offices
f)
2'
survey/resurvey and updating of the survey & settrement
records
(including ground control network and ground Truthing)
if,"
following modern technology options:
".ing
a) Pure ground method using Llectronic total station (ETS) and globar
b)
c)
3.
positioning system (GpS); or
Hybrid methodology using aerial photography and ground
Truthing by
ETS and GpS; or
High Resolution Satellite Imagery @RSI) and ground rruthing
by ETS
and GpS.
ComputerizationofRegistration
a) Computerization of the sub_registrar,s offices (SROs)
b) Data entry ofvaluation details
c) Data entry oflegacy encumbrance data
d) Scanning & preservation ofold documents
e) Connectivity to SROs With Revenue offices
5.
a)
b)
6.
a)
b)
Modern record rooms/land records management centers
at
TehsiUTaluk/Circle/Block level
Training & Capacity Building
Training, worships, etc.
Strengthening ofthe Survey and Revenue training
institutes
Core GIS
Village index base maps from.satellite imagery, for
creating the core GIS;
Integration of three layers ofdata: (i) Sp"ti"U jutu
fro- u".iut photograph or
high-resolution satellite imagery;
liiil sr.uey or inaiu *a roi".t si*"y oi
India maps; and (iii) Cadastrll maps from;.rr;;;;;r.
Legal Changes
a)
Amendments to the Registration Act, l90g;
b) Amendments to the State Stamp Acts;
c) Other legal changes; and
d) Model law for conclusive titling.
8.
a)
b)
c)
d)
e)
Programme Management
&^Monitoring committee in the DoLR;
tl:qrXT-T".rTcrioning
ore I echnical Advisory Group in the DoLR and
the StatesfuTs
Programme Management Unit (pMU) in the
DoLR and the StatesruTs
Information, education and communication (IEC)
u.,iriri.,
Evaluation
-3Perceived benelits of NLRMP: - Citizen Services and Benefits
i) Real-time records will be available to the citizen.
ii) Since the records will be placed on the websites with proper security
IDs, property owners will have free access to their records while
maintaining confidentiality.
iii) Free accessibility to the records will reduce interface between the
citizen and the Government functionaries, thereby reducing rent
seeking and harassment.
iv) Public-private partnership (PPP) mode of service delivery will
further reduce citizen interface with Govt. Machinery, while adding
to the convenience.
v) Abolition of stamp papers and payment of stamp duty and
registration fees through banks, etc. will also reduce interface with
the Registration machinery.
vi) With the use of IT inter-linkages, the time for obtaining RoRs, etc.
will be drastically reduced.
vii) The single-window service or the web-enabled "anytime-anywhere"
access will save the citizen time and effort in obtaining RoRs, etc.
viii) Automatic and automated mutations will significantly reduce the
scope of fraudulent property deals.
ix) Conclusive titling will also significantly reduce litigation'
x) These records will be tamper-proof.
xi) This method will permit e-linkages to credit facilities.
xii) Market value information will be available on the website to the
citizen.
xiii) Certificates based on land data (e'g., domicile, caste income etc.)
will be available to the citizen.
xiv) Information on eligibility for Govemment programmes will be
available, based on the data.
xv) Issuance of land passbooks with relevant information will be
facilitated.
Objectives of the Proposed StudY
The objective of study is a mid-term evaluation implementation of the programme
in terms of availability of on-line services in respect of RoRs, Registration, & mutation in
the rural areas, and the consequent impact in improved delivery of services due to the
activities taken up under NLRMP (and completed under its predecessor schemes) and to
identify the constraints in the implementation of the NLRMP programmes. The study will
bring out:
The progress of project implementation in terms of achievement of physical
targets at the field level.
The fund flow status, financial progress and impediments if any'
implementing
An assessment the capacity and efficiency
administrative machinery especially to handle the hitech components of
other institutional arrangements
the programme and availability
including vendors for project implementation
D
iD
iiD
of
of
of
iv)
v)
vi)
vii)
viii)
i*)
x)
xi)
xii)
xiii)
-4An evaluation ofthe coordination among different departments viz.
Revenue, Registration and Survey and Settlement and linkages developed
between these departments including on-line/ IT linkage
A comparative analysis ofthe efficiency, accuracy and economy in
technologies used by different States in survey and resurvey. The study will
specifically compare and evaluate the survey/resurvey techniques used by
Kamataka, Gujarat, and Haryana for their replicability or adoption by other
States.
An evaluation of the Training & Capacity Building activities at all level by
type oftraining, requirements ofthe states and gaps in training.
An evaluation of the efficacy of M&E System of the States/ UTs under the
Project
An evaluation the involvement of community in the project planning, and
implementation especially in survey and resurvey components.
Evaluation ofthe benefits to the people including landholders, businesses,
and other stakeholders with implementation of the programme.
Best practices/ innovations adopted by various States in implementing
different components of the programme.
Constraints in implementation of the programme including availability of
infrastructure such as broadband compatibility ofthe software used by
registration, land records and survey and settlement departments etc.
Recommendations to expedite its implementation of the programme
To evaluate the preparedness of States to reach the ultimate goal of
ushering in the system of conclusion titles.
Methodolory:
Sampling design and area coverage:
The mid- term evaluation will cover all regions of India Gujarat (WR), Haryana
(NR), Karnataka (SR), Madhya Pradesh (CR) , Tripura (NER), and West Bengal
(ER). At the next level of selection of 5o/o of the computerized Tehsil, 5% of
computerized sRos, at least two modem record rooms in the District under study and at
least one tehsil in which Survey work has been initiated/ completed will be selected. To
evaluate benefit to the people in terms of improved citizen services about 20 households
in 10 villages with at least one female headed household will be selected. Mid- Term
Evaluation study will focus on the activities implemented with the support of the DoLR
funds under NLRMP such as Computerization of RoR, Digitization of records,
computerization of registration, Interlinking of registration and RoR and survey/resurvey
to draw lessons for further corrections in the programme. An attempt should be made to
analyse activities in comparison to a related baseline values (i.e. where or when such
activities had not taken place).
-5-
Institutional Arrangements for the study:The agency to be deployed for the purpose would take a premier lead role in
coordinating the task at the National Level. The agency also would be responsible for
the preparation of consolidated report at the over-all level. The responsibility of
coordinating the state level reports would also be with this agency. The agency in-turn
could sub-contract separate institutes/agencies for carrying out the studies &
preparation of report at the state level, as per the need and operational requirement.
The lead agency at the national level would be of reputed credentials with established
infrastructure facilities to facilitate supervise and coordinate the work. The agency
will:
(a) Organize a National Workshop for;
i) Evolving a standard format for reporting and identifying key indicator for a
comprehensive mid-term evaluation study of impact of investment.
ii) Developing the financial norms for the study.
iii) Planning for overall impact evaluation strategy.
(b) Scrutinize and consolidate the study findings and suggestions of policy
implication.
(c) Coordinate and supervise the state-wise comprehensive studies.
(d) Organize National sharing workshop (Sharing of lesson and draw up strategies for
better result).
(e) Bring out the consolidated report
Collaborating Institutions:For the collaborating/ Collaborating institutional arrangement, preference
will be given to Govt. institutions having requisite experience in the field to be
selected as collaborating institutions. In the absence of the same, leading
academic/research instifutions and Non-Government Institution of repute and
experience also can be considered. These organizations will perform the following
tasks:
(a) Assist National Agency in Carrying out the comprehensive study of impact
of investment in NLRMP projects as per the design, indicators, tools and
instruments developed
by leading institute. The
subcontacting/collaborating agency would carry- out field surveys and prepare
a comprehensive study report based on the common minimum framework
developed by the National Institute.
(b) Organize regional workshop to share the findings of the study and
incorporate the feedback.
(c) Collection and documentation ofbest practices.
(d) Any other work assigned by National Agency related to the study.
-6Qualilications for empanelment of Evaluating Agency:The requisite qualifications for empanelment ofthe Evaluating Agencies as
circulated by this Department to sLNAs (in addition to the provisions in ToR) would be
as under:a) The names of leading and reputed organizations (including NGos) with required
infrastructure, expertise and experience should only be included.
b) Implementing Agencies should not be empaneled for the State in which it is
working as project implementing agency.
The panel is to include only institutions and agencies- not individuals.
d) The individual evaluators or officials deputed by the enlisted organizations,D.lGOs,
should have academic qualification of post-graduation in any of the discipline
namely Geography, Agriculture-economics, Geo-spatial Technology,
Urban/Regional Planning (Not below the rank of chief rown planner) and related
axeas or have undergone specialized training in any these discipline and have
worked for a minimum period of ten years in rerated disciplines in any
organization of repute or under the central/state/Govemment in ihe concemed
Departments.
c)
Shortlisting Procedure
l.
The proposals submitted by the firms/institutesalGos in the prescribed
formats from Annexure I to III shall be evaluated.
The short-listing criteria for evaluation ofEols shall be:
2.
Sr.
No.
Criteria
1.
Past Experience
Weightage (%)
of
the
Minimum
Eligibility
Sub-criteria = Marks
60
firm
i.
ii.
2.
J-
J.
4.
Number of yearsi
experience
Past Experience of
studies of similar
nature.
Experience
af --nt
Personnel
20
5 Years
5 to 10 Years = 10
11-15 Years = 15
16 &above Years= 20
40
5 Projects
5
to l0 Projecls
= 25
5 Projecls =30
16-20 Projecls = 35
1
1
-1
21 & above Projects = 40
25
1O KP
10 KP = 12.5
11 to 15 KP= 15
2.O crore
21 & above KP= ?5
2 to 3 crores= 7.5
4 to 5 crores= '10
6 to 9 crores= 12.5
10 & above crores= 15
16to20KP=20
Financial Strengft.h of ttre
firm
15
The firms,{Institutes/NGos scoring minimum 50% marks on the basis
of the
above criteria will be shortlisted for issuing Request for proposal (RFp).
The firms,{Institutes,t',{Gos who are not having minimum eligib ity for
each
criteria,/sub-criteria
will not be considered
as responsive.
a
Deliverables of the study
(a) State-wise status report on mid-term evaluation of the programme'
(b) National consolidated comprehensive study report
Time Duration of the Project
The project to complete within 9 months from the date of initiatior/contract.
BUDGET
A detailed budget would be prepared by the Lead National Agency, including the
following items:-
A.
Sl. No.
For Lead AgencY
Amount
Item of Expenditure
(Rs)
1.
2.
J.
4.
5.
6.
(a) Human Resource / Manpower
(b) Travel
Sub Total
Organizing Workshop
Communication
Institutional Charges (if any)
Misc. Expenditure (not above 5%o of
total)
Tax (as applicable)
Total ( A)
B. Detailed Cost Estimation ofper Sub agency (for collaborating
sl.
Item of Expenditure
No,
1.
2
3.
4.
5.
6.
7.
(a) Human Resource/ ManPower
(b) Travel cost
Sub Total
Organizing Workshop (lumPsum)
Communication
Report preparation
Institutional Charges (if any)
Misc. Expenditure
Tax (as applicable)
Totat (B)
Grand Total of Table (A + B)
Amount (Rs)
agencies):-
Annexu re-I
Format for Experience
l.
Name of the Firm/ Institute / NGO 2. Year of Establishment
)- Experience of Similar projects
Sr. No.
l
ll.
l1l.
lv.
vl.
vlr.
vlll.
lx.
x.
Name of the Projeci
Related Organization
Cost of Prolec
Annexure-II
Format for ExDerience of Kev Persons-
L
2.
3.
-
Name of the Finr/ Institute / NGO
Total Number ofKey Persons/ Experts-
Qualifications & Experience ofKey PersonsSr. No.
l.
11.
lll.
lv.
vl.
vll.
vlll.
lx.
x.
Name of the Key Person/Expert
Qualification
Years of
Experience
Annexure-III
Format for Experience of Kev personsl.
Name of the Firm/ Institute / NGO
2. Tum Over of the Firm-
Financial Year
2013-14
Average of
Last 3 Years
Total Turn Over (Crore)
INR