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. 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Implementation Public Sector Bank Production Sharing Contract Public Sector Enterprise Persons with Disabilities Qualification Packs Research and Development Renovation and Modernization Road Accident Data Management System Reserve Bank of India River Basin Organizations Regional Comprehensive Economic Partnership Rehabilitation Council of India Revised Estimate Renewable Energy Management Centres Radio Frequency Identification Device Request for Proposal Request for Qualification Right of First Refusal Recognition of Prior Learning Renewable Purchase Obligations Repair, Renovation and Restoration Regional Resource and Training Centres Regional Rapid Transit System Right of Children to Free and Compulsory Education Rashtriya Uchchatar Shiksha Abhiyan Science and Technology Specifications for Urban Roads Execution State Annual Action Plans Skill Acquisition and Knowledge Awareness for Livelihood Promotion Programme Special Accelerated Road Development Project Swachh Bharat Mission Scheduled Caste Scheduled Commercial Banks Singareni Collieries Company Limited Scheduled Caste Sub-Plan Securities and Exchange Board of India Socio-Economic Caste Census Solar Energy Corporation of India Limited Self-Employment Programmes xii ;-8 ;-91 ;-B ;.)+ ;0/ ;08 ;1: ;1:, ;4,+ ;5- ;51, ;7 ;8> ;:45 ;:: ;;) ;;+ ;;+5 ;< ;<-5 ;<8 ;=0 ;=;> ;?1.< <, <):+ <+); <,; <0: <1.: <:)1 <:18; <;8 =,)A =,1, =/+ =1,)1 =18 =3 =4* =54+ =5<) =6 =6-+- =;) ;MTN-UXTWaUMV\8ZWOZIUUM[ ;KPWWT-L]KI\QWV9]ITQ\a1VLM` ;XMKQIT-KWVWUQKBWVM ;UITT.IZUMZ[)OZQ*][QVM[[+WV[WZ\Q]U ;MTN0MTX/ZW]X ;UITT0aLZW8W_MZ ;XMKQIT1V^M[\UMV\:MOQWV ;\I\M1V[\Q\]\M[WN :]ZIT,M^MTWXUMV\ ;\I\M4WIL,M[XI\KP+MV\ZM ;UITTIVL5MLQ]U-V\MZXZQ[M ;WKQIT5WJQTQbI\QWVIVL1V[\Q\]\QWVIT,M^MTWXUMV\ ;]TXP]Z,QW`QLM ;XMKQIT8]ZXW[M>MPQKTM ;\I\M:]ZIT4Q^MTQPWWL5Q[[QWV ;MML:MXTIKMUMV\:I\M ;IZ^I;PQS[PI)JPQaIV ;MK\WZ;SQTT+W]VKQT ;Q\M;XMKQNQK+ZWX5IVIOMUMV\ ;KPML]TML<ZQJM ;KQMVKM<MKPVWTWOa-VOQVMMZQVOIVL5I\PMUI\QK[ ;M_IOM<ZMI\UMV\8TIV\[ ;PMT\MZNWZ=ZJIV0WUMTM[[ 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Water Resource Information System 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 W^MZUWZM\PIV\PZMMLMKILM[-^MV]VLMZ\PMUW[\LMUIVLQVOLMNQVQ\QWVWN MUXTWaUMV\\PM]VMUXTWaUMV\ZI\M KWV[Q[\MV\TaZMUIQV[JM\_MMV IVL   1VLMML ]VMUXTWaUMV\ Q[ \PM TM[[MZ WN  1VLQI¼[ XZWJTMU[ <PM UWZM [MZQW][ XZWJTMU QV[\MIL Q[ [M^MZM ]VLMZMUXTWaUMV\)RWJ\PI\WVM_WZSMZKIVXMZNWZUQ[WN\MVXMZNWZUMLJa\_WWZUWZM_WZSMZ[1VMNNMK\\PW[M QV\PM_WZSNWZKMIZMMUXTWaMLJ]\\PMaIZMW^MZ_PMTUQVOTa[\]KSQVTW_XZWL]K\Q^Q\aTW__IOMRWJ[  <PZMMM`IUXTM[QTT][\ZI\M\PMXWQV\.QZ[\QVI[XMZ\PM6;;7-UXTWaUMV\=VMUXTWaUMV\;]Z^Ma!  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Measures to improve financial inclusion should be complemented with steps to improve financial literacy, especially to make people more aware of the benefits of using the formal banking system to send and receive payments, save and borrow money. While the share of population with bank accounts has gone up sharply over the past few years, active use of these accounts or financial involvement remains low. Enhancing financial literacy through campaigns, creating financial literacy modules in school and vocational curricula. The government should leverage the staff of public and private banks in rural areas to spread knowledge about the use of financial services. Additional action points on increasing financial literacy and inclusion through digital financial services are discussed in the Chapter on “Digital Connectivity.” TOURISM, CULTURE AND SOFT POWER 6.62. The Hospitality, Travel and Tourism sector is a major driver of growth and employment worldwide and especially in India where it made up 6.7% of the GDP in 2014. Foreign tourist arrivals in India have increased from 5.1 million in 2009 to 8.1 million in 2015.45 As a host to 35 world heritage sites, 10 bio-geographical zones and 26 biotic provinces, India has significant potential to increase number of arrivals going forward and increase its global presence by leveraging its cultural industries and soft power. Further, as a highly labour intensive sector, tourism has the capacity to generate large-scale employment. It is an important sector to create jobs amongst the poorest segments of the population and can act as a gateway to formal sector employment. To capitalize on the job creation potential of the tourism sector and leverage soft power, six key areas for action are identified: visas, infrastructure, promotion and marketing, skill development, taxes and soft power. Visas 6.63. The 2015 extension of the e-Tourist visa to 150 countries contributed to the growth of the tourism sector. After the extension of the e-visa, the number of tourists that arrived between January and July 2016 increased by 266%.46 We need to ensure that the existing facility works efficiently. In addition, the following steps may be taken. 1. Increase Awareness. We should increase information and awareness of the e-visa facility globally so that an increasing number of tourists avail it. One possible way to do this is to launch an information campaign through our consulates abroad. 2. Solicit Feedback. We should solicit feedback on foreign travellers’ experiences during the application process and in obtaining the visa through a centralized online form or kiosks at airports. Data from users of the e-visa on specific aspects can help improve its functioning. 3. Simplify Conference Visas. Industry experts report that travellers find it hard to obtain conference visas. Individuals circumvent this by entering on tourist visas. We should launch an e-visa regime to attract the Meetings, Incentives, Conferences and Exhibitions (MICE) market. 4. Simplify Entry for Cruise Tourists. We should also streamline immigration processes for cruise tourists with Advance Passenger Information (API), on-board clearances and other processes to ease entry. Infrastructure 6.64. Develop Five Beach Destinations as Tourism Zones. The government and private sector should develop 5 exclusive tourism zones around beaches. Globally, beach holidays have grown by 18 % over the last five years and remain an important segment of leisure travel with 28 % of all holiday trips.47 India’s zones should be based on master planning including best practices in engineering (drainage, sewage, solid waste management) and sustainability. In developing these zones, we should draw upon examples that have successfully developed tourism around beaches such as Bali, Sentosa and Antalya. 6.65. Develop identified islands by 2020. The central government has already expressed interest in developing about ten islands in India into global destinations. Of these, 5 have been identified in Lakshadweep and another five in the Andaman Islands. These islands would primarily target foreign tourists. We should partner with investors to start developing hotels and resorts on all 5 islands by 2020. 6.66. Plan and Develop Five National Circuits. Even though funds have been committed to the development of public infrastructure there are no truly world-class destinations in India. Developing fewer circuits will allow us to shift the focus to quality, creating world class tourism circuits from entry to exit. We should focus efforts on building five 41 globally competitive destinations and complete these by 2020, partnering with state governments and the private sector. 6.67. Swachh Bharat. It is important that we take the Swachh Bharat campaign to its logical conclusion. For repeat visits, it is important that tourists carry the memories of a clean India with them. They are also more likely to recommend India as a tourist destination to their friends and family if they carry good impression of their visits. Minimally, we need to ensure that the tourist circuits, islands and beach destinations we develop are kept immaculate. Promotion and Marketing 6.68. Enhance Digital Marketing Efforts. We should enhance digital efforts by building aggressive digital and social media centric campaigns. The Ministry of Tourism currently has 14 overseas and 20 domestic offices. It should conduct a cost-benefit analysis of these offices relative to the effectiveness of digital marketing efforts. If the physical locations appear ineffective, closing them where appropriate would release funds for digital marketing efforts. 6.69. Promote India Abroad. A key element in tourism promotion must be targeted advertising abroad. In the richer countries in Asia such as China, Thailand, Malaysia, Singapore and South Korea, prospects of attracting tourists are excellent. Income levels in countries such as Indonesia, Sri Lanka, Bangladesh and Vietnam are also rising rapidly. India also shares cultural similarity with many of these countries with Malaysia, Singapore, Thailand, Indonesia, Sri Lanka and Bangladesh even having substantial populations of Indian origin. Therefore, targeted promotion in these countries using digital media including TV advertisements can have a high yield. With its large population and relatively high incomes, China can be a particularly significant source of tourists. 6.70. Incentivize the Private Sector to Contribute Resources and earmark funds for marketing. We should create a scheme under which the government matches in equal amount private sector expenditure on tourism marketing. Depending on its star rating, size and other parameters, the government may offer a fixed contribution to each hotel and travel agency. Under ‘Experience India,’ this is being done but on a small scale. Further, we can also mandate that a pre-defined amount or share of tourism revenues – such as the e-Tourist visa fee – is set aside for marketing and promotion. The Ministry of Tourism can draw upon the experience of the ‘Brand USA’ campaign where USD 10 of each applicant’s visa fee is allocated to marketing. 6.71. Design policies using data. The campaign should use market statistics and data on consumer usage and dynamics to target its marketing efforts. It should also use data to offer specific products and themes to different segments of the population. For example, based on usage statistics, it could target adventure tourism promotional materials to a younger audience. The campaign can also draw on data from successful strategies in Australia, UK and Turkey. Skill Development 6.72. Create a dedicated university for leadership in the tourism sector. A specialized university, which will not only regulate taught courses but also become the fulcrum of professional education, research and advocacy, will help create managers and entrepreneurs in tourism. In addition, courses on tourism may be introduced in the existing universities and vocational education institutions as well. 6.73. Support private sector institutes in tourism regulated by the government. In addition to the state run or state supported institutes, private institutes should be encouraged to be able to create the required talent pool. India has 21 central institutes of hotel management. A broader set of skills needs to move beyond hotels to other aspects of tourism. The private sector can provide elementary training at the managerial level and we should encourage private institutes to do so formally. 6.74. Update the skills of existing workers. Current service providers such as taxi drivers, boat operators, guides, restaurant and dhaba workers would benefit from retraining on a regular basis. This can be done by the state tourism departments in association with the local tourism and hospitality institutes with the active participation of the industry as per a fixed schedule. 42 Cultural Tourism 6.75. Create a National Museum Authority to oversee all museums. Currently, India’s museums fall under different departments and ministries across the central and state governments. There is no overarching body for their management, funding, development and maintenance. Further, although several museums receive technical and financial support from international agencies, funds are often insufficient to maintain the museums and cover new initiatives such as digitization of collections. There is already an existing national expert committee on museums. However, an overarching authority with a broader mandate is needed to sufficiently address the issues faced by museums in a coordinated manner and should be created in the next three years. Tax Reforms 6.76. Tax reforms will be necessary to reduce barriers to trade and tourism. The smooth implementations of the Goods and Services Tax (GST) and related reforms will help facilitate travel and tourism. We should consider placing tourism in the lower tax bracket of the GST to ensure competitiveness with foreign destinations. In addition to the successful rollout of the GST, we should help streamline taxes specific to the tourism sector. This will also improve the ease of doing business and attract investment into the sector. Soft Power 6.77. Soft power, the ability of a country to attract others through its culture, spiritual and political values and foreign policies rather than coercion or economic rewards, occupies an increasingly greater role across the globe. India is no exception. Given our democratic values, rich history, the diversity of languages, cultural practices and crafts we have many sources of soft power. While several aspects of India’s soft power such as democratic ideals, yoga, sufi music, literature, traditional textiles and Bollywood are commonly found across the world, India still has a long way to go to maximise the benefits of its cultural treasures. For example, even though a large number of foreign tourists travel to India to learn more about our culture and ancient civilization, low levels of funding and poor maintenance of museums and heritage sites prevent them from realising their full potential. Similarly, the absence of a coordinated strategy to promote and disseminate practices such as yoga and ayurveda also prevents their greater proliferation globally. This section highlights how we can leverage our cultural, creative and human resources more effectively to increase our international presence. 6.78. Establish cultural centres across the globe. During the next three years, a comprehensive soft power policy must be finalised to leverage India’s cultural and creative strengths. Further, we should establish cultural centres in various countries, similar to the Alliance Francaise Centres (France), Goethe Institutes (Germany), Instituto Cervantes (Spain) and Confucius Institutes (China). These centres will serve as symbols of youth and modernity and help leverage Indian culture worldwide, with implementation that involves a wide range of academics, artists and experts. Beyond creating centres abroad, we should also develop and improve museums and heritage sites within India to spread knowledge. Further details related to improving the management of museums and heritage sites within India have been discussed previously. 6.79. Create a dedicated humanitarian and relief agency. A specialized humanitarian assistance and disaster relief agency should be created under the joint aegis of the Ministry of External Affairs and National Security Council Secretariat (NSCS) to deliver humanitarian assistance in less developed countries. Further, along the lines of EXIM Bank’s funding of a medical facility in the Cayman Islands, we can launch other initiatives to provide assistance in health in African and Asian countries leveraging Indian human resources in leading hospital chains. 6.80. Create a database of artisans and craft preservation. We should collect and disseminate information on different craft forms, their preservation and areas where they exist. As part of this exercise, we should also document best practices and create a database of these as well as a list of master craftsmen. This will not only help us preserve practices but also share knowledge with others. We could draw lessons from other countries’ experiences. For example, Korea’s Development Agency has developed a repository of more than 4,000 traditional skills. 6.81. Increase emphasis on global marketing and promotion. We should create a uniquely Indian brand around traditional crafts and cultural practices such that it not only has global appeal but it also serves as a source of revenue. For example, Indian animation could be developed using our own visual vocabulary and themes. We should also devise promotional campaigns addressing informational asymmetries on electronic media. 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Civil service is the backbone of the government. It needs to be empowered to make quick decisions and implement them. Sustained high levels of performance can only be achieved if performance is objectively measured with high performance rewarded and poor performance reprimanded. 16.9. Today, rising complexity of the economy has meant that policy making is a specialized activity. Therefore, it is essential that specialists be inducted into the system through lateral entry. Such entry will also have the beneficial side effect of bringing competition to the established career bureaucracy. 16.10. Institutionalize goal setting and tracking for each department. Each Ministry and government agency should set outcome-based goals with a clear timeline. The current government has moved in this direction but the process could be formalized and institutionalised. Making the goals and progress available publicly would go some distance towards incentivising delivery. 16.11. Implement an HR system for government employees. Human Resource Management needs to be a strategic function in the government. It should be implemented through a unified single online platform that covers employees from the time they are hired to when they leave service. Such a portal would incorporate all HR related requirements such as performance appraisal, training, leave and disciplinary proceedings. It could also facilitate Massively Open Online Course style capacity building for government employees. 16.12. E-governance and paperless governance ranking for ministries at central and state levels. Each government department and agency should be ranked on the basis of their move to the e-office system, reduction of paper use, and citizen engagement through the electronic medium. This would permit increased efficiency, better tracking of progress on files and improved interface with citizens. Some ministries and agencies have already made the move and demonstrated that this change can be achieved immediately. A ranking will shine the spotlight on ministries that are dragging feet and incentivise them to change. The goal should be full digitization by the end of 2018-19. Several other measures to promote e-Governance are also mentioned in the Digital Connectivity chapter. 16.13. Outsource service delivery where possible. We should reduce dependence on government administrative machinery wherever possible. We can make use of the power of Aadhaar based identity verification to allow private channels to provide services wherever possible. Identification of such services should be taken up and PPP models to provide those services should be explored. 16.14. Longer tenure of Secretaries. Currently, by the time an officer is promoted from Additional Secretary to Secretary, usually she has two years or less left before retirement. This feature creates two important inefficiencies. One, with a time horizon shorter than two years, the officer is hesitant to take any major initiatives. Two, and more importantly, to the extent that any misstep may become the cause for charges of favouritism or corruption post retirement, the officer hesitates to take decisions on any major project. This causes inordinate amount of delay in decision-making. One possible solution to this problem is early promotion to the Secretary position. Introduction of lateral entry, discussed immediately below, will facilitate this change. 16.15. Increase specialization and induct lateral entry. Finally, in areas requiring specialised knowledge, it is important to develop expertise among internal staff and induct lateral entry. For the former, officers may be encouraged to gain expertise in specific areas in the early stages of careers and the current system of rapid rotation of officers across ministries may be replaced by a system of longer postings according to specialization. Officers should also be encouraged to enhance their knowledge and skills in the chosen area of specialization through intensive training. 16.16. This specialization by the internal staff needs to be complemented by lateral entry of highly specialized staff on fixed-term contracts. Specialists could be brought on three to five year contracts. Such a system will bring top talent and energy into the government and will lend new dynamism to the ministries. The NITI Aayog performs many tasks requiring specialized knowledge and skills. Therefore, it has recently proposed changes to its Rules of Recruitment, which if approved would open the door to lateral entry. 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