Guidelines

Pilgrimage Rejuvenation and Spiritual, Heritage

Augmentation Drive
PRASHAD Scheme
Oct’ 2021

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Table of Contents

1. Rationale ................................................................................................ 2
2. Vision Statement .................................................................................... 3
3. Objectives .............................................................................................. 3
4. Approach ............................................................................................... 4
5. Management Structure.......................................................................... 4
6. Standard Approval Procedures ............................................................ 10
7. Selection criteria for pilgrimage sites/ destinations ............................ 10
8. Selection criteria for integrated development of heritage cities ......... 11
9. Admissible components ....................................................................... 12
10. Inadmissible components .................................................................... 14
11. Monitoring ........................................................................................... 15
12. Funding Mechanism ............................................................................ 16
13. Program Duration ................................................................................ 17
14. Management of Assets Created ........................................................... 17
15. Expected Outcomes ............................................................................. 18
16. Annexures……………………………………………………………………………………… 19

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 Government of India
Ministry of Tourism
PRASHAD
Scheme Guidelines for National Mission on
Pilgrimage Rejuvenation and Spiritual, Heritage Augmentation Drive

1. Rationale

India is blessed with rich and diverse natural, historic, cultural, and spiritual resources.
Millions of tourists from the domestic and international places come to India to experience its
spiritual prowess and Indian heritage. India being a land of many religions like Hinduism,
Buddhism, Jainism, Sikhism and Sufism have centers of pilgrimage for various faiths since ages
and these have immensely contributed to the development of Indian heritage values. In fact,
religion, spirituality, and heritage are common motivations for travel, with major tourist
destinations having developed largely as a result of their connections to sacred or historic
places, persons, and events. The growth of domestic tourism in India largely depends on
pilgrimage and heritage tourism and to tap this potential there is a need for integrated
development of the selected pilgrimage destinations and integrated development of heritage
cities in cooperation with other stakeholders. The integrated development is not only about
development and conservation of few monuments, but development of entire city, its
planning, its basic services, quality of life to its communities, its economy and livelihoods,
cleanliness, security, reinvigoration of its’ soul and explicit manifestation of its character.

However, religious tourism destinations are not like holiday/leisure tourism

destinations, which are primarily targeted at the segment having inclination to travel and
spend. In developing a religious tourism product, it is essential to build in community
participation at the given location/destination. Further, it is not only important to provide
modern amenities at religious sites but also to see as to how the visitor interacts and seeks
new experiences at such places. There is a need to identify core deficiencies, facilitate
provision of products, services and subsequently address the issues that are important for
paving the way for development and promotion of religious tourism in India.

Whereas heritage cities tourism would largely attract a different audience. But the
issues are not different, and the fact is that the heritage areas are neglected, overcrowded
with inadequate basic services and infrastructure, such as water supply, sanitation, roads, etc.
Basic amenities like toilets, signages, streetlights are missing. Also, there is a need for a
more structured approach to manage the development of such city based on tourism
infrastructure that ensures fast pace and effective implementation on the ground.
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 There have multiple initiatives been carried out by various Ministries for development
of infrastructure for tourists but still there are persisting challenges which needs to be
addressed like lack of infrastructure on accommodation for budget hotels, roads, last mile
connectivity, sewage, hygiene and cleanliness, solid waste management, lack of awareness,
developing a code of religious etiquette to be observed by the religious tourists, etc.
PRASHAD scheme offers a tremendous opportunity to undertake infrastructure
developments at the important pilgrimage and heritage destinations/cities in an inclusive,
integrated, and sustainable manner that focuses on livelihoods, skills, cleanliness, security,
accessibility, and service delivery.

2. Vision Statement

Rejuvenate pilgrimage and spiritual experience of the tourists through availability of

well- planned tourism infrastructure enabling tourist convenience, accessibility, security,
cleanliness, experience and revitalize / preserve the soul of the pilgrimage/heritage city
through integrated, inclusive, and sustainable developments that would spur employment
opportunities for the local communities.

3. Objectives

• Rejuvenation and spiritual augmentation of important national/ global pilgrimage

destinations.
• Enhance tourism attractiveness of identified pilgrimage destinations and heritage cities
under integrated tourism development of heritage city in planned, prioritized and
sustainable manner by providing world class tourism projects in them.
• Position pilgrimage and heritage tourism as a major engine for its direct and multiplier
effects of economic growth and employment generation.
• Follow community-based development through ‘Pro-Poor’ tourism concept and
‘responsible tourism’ initiatives.
• Assure active involvement of local communities through employment generation
• Creating awareness among the local communities about the importance of tourism for
them in terms of increase in sources of income, improved living standards and overall
development of the area.
• Promote heritage in the form heritage structures especially under integrated tourism
development of heritage city, local arts, culture, handicrafts, cuisine, etc., to generate
livelihood in the identified places.
• Strengthen the mechanism for bridging the infrastructural gaps at identified pilgrimage
destinations and throughout heritage cities as identified under integrated city heritage
tourism development within the core tourism footprint.
• Develop a monitoring mechanism for timely implementation of the projects in
collaboration with the States/UTs and other stakeholders.
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 • Strengthen the measures for safety and security of pilgrims and tourists and improve the
quality of tourism services.
• Enable convergence of State and central Government schemes as well as private sector
developments for integrated site/ destination development.

4. Approach
Pilgrimage and heritage tourism are key themes for driving the tourism footfall in destinations
and cities. While religious/pilgrimage tourism is more of a destination-oriented theme, heritage
tourism is based on city wide experiences that are influenced by both tangible and in-tangible heritage
assets. There is a need to develop cities in an integrated manner to enhance tourism experiences.
Pilgrimage Rejuvenation and Spiritual Augmentation caters to the developments within limited
tourism footprints around the destinations where-as heritage cities have a wider tourists footprints
covering various destinations within the heritage core of the city. Also, the intervention within the city
touches various dimensions on water supply, sewerage, urban development, water bodies
preservations, Roads & Transport, Urban transport, Urban renewal, and heritage conservation etc.
and that demands an integrated and coherent approach to developments. While the developments
under destinations shall be limited in scale. Based on that premise, integrated heritage city
development approach has been introduced in the scheme to enhance the tourism potential of the
heritage cities along with the pilgrimage rejuvenation of the destinations.
The pilgrimage destinations are selected on the basis of pilgrimage lineage, pilgrim footfall while
the heritage cities are selected on the basis of high heritage values of the city, tourist footfall, number
of monuments and their accreditations. The scheme entails to complete the implementation of nearly
50 destinations and 20 heritage cities till the 14th Finance Commission by 2020 and beyond.
Pilgrimage destinations and Heritage cities are identified on the basis of the criteria set out in
the Annexure 1 & 2. Post notification, States would be required to prepare an Integrated Plan (IP) for
the respective pilgrimage destinations and tourism heritage cities. While the IPs for the pilgrimage
destinations would be prepared by the center in consultation with the States, there shall be a different
approach followed for IPs for integrated development of heritage cities.
Integrated Plans (IPs) for the heritage city developments shall be prepared under the direct
authority of the city/State Government in consultation with public participation and stakeholder
consultation. These plans would be worked upon on the existing master plans, city development plans,
city investment plans etc., and shall be approved by the State Integrated Plan Approval Committee
(IPAC) before submitting to the national IPAC for final approval. The State IPAC shall be convened by
the State Tourism Secretary and National IPAC shall be convened by the Secretary Tourism, GoI with
representations from various Ministries.
Post approval of the IPs, the States shall prepare the Detailed Project Report for the respective
projects and submit to the Mission Directorate followed by the Central Sanctioning & Monitoring
committee for Sanctioning approvals.
Please refer details on the committees in the Management Structure section of the guidelines.
5. Management Structure
5.1. National Steering Committee (NSC)
National Steering Committee (NSC) shall steer the mission objectives and vision of the
scheme, a National Steering Committee shall be constituted as shown below:

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 1. Minister in Charge, M/o Tourism Chairman
2. Secretary, M/o Tourism Vice Chairman
3. Financial Advisor, M/o Tourism Member
4. Additional Secretary, M/o Tourism Member
Member Secretary,
5. ADG/JS, M/o Tourism
In charge of scheme
Secretary (or his representative, not below the rank of
6. Member
Joint Secretary), M/o Culture
7. Director General, ASI Member
Secretary (or his representative, not below the rank of
8. Member
Joint Secretary), M/o Urban Development
Secretary (or his representative, not below the rank of
9. Joint Secretary), M/o Housing and Urban Poverty Member
Alleviation
Secretary (or his representative, not below the rank of
10. Member
Joint Secretary), M/o Civil Aviation
Secretary (or his representative, not below the rank of
11. Member
Joint Secretary), M/o Skill Development
Secretary (or his representative, not below the rank of
12. Member
Joint Secretary), M/o Road Transport & Highways
Secretary (or his representative, not below the rank of
13. Member
Joint Secretary), M/o Shipping
Secretary (or his representative, not below the rank of
14. Member
Joint Secretary), M/o Power
Secretary (or his representative, not below the rank of
15. Member
Joint Secretary), M/o Environment & Forests
Secretary (or his representative, not below the rank of
16. Joint Secretary), M/o Water Resources, River Member
Development & Ganga Rejuvenation
Secretary (or his representative, not below the rank of
17. Member
Joint Secretary), M/o Rural Development
18. Executive Director (Tourism & Catering), M/o Railways Member

Key responsibilities:
National Steering Committee will be responsible for overall guidance, review and
monitoring of the scheme.
• Enunciate the vision and chalk out the road map for the scheme and provide a platform
for exchange of ideas.
• Steer, review and monitor overall performance of the scheme and provide guidance on
specific issues relating to the scheme.

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 5.2. Integrated Plan Approval Committee (IPAC)
5.2.1. National IPAC
A committee chaired by Secretary, Tourism and consisting of following indicative members:

1. Secretary, M/o Tourism Chairperson

2. Financial Advisor, M/o Tourism Member
3. Additional Secretary, M/o Tourism Member
4. ADG/JS, M/o Tourism (Secretary, NSC) Member-cum convener
5. Secretary (or his representative, not below the rank Member
of Joint Secretary), M/o Culture
6. Director General, ASI Member
7. Secretary (or his representative, not below the rank Member
of Joint Secretary), M/o Housing and Urban Affairs
8. Principal Secretaries of respective States Member

*Representation of stakeholders like UNESCO, World Bank, or other bilateral and

multilateral agencies and experts for heritage and urban planning sector would be invited with
approval of the Chair.
Key responsibilities:
National IPAC shall be the final approval authority for the Integrated Plans (IPs) for the
pilgrimage destinations and integrated development of heritage cities. Following shall be the
responsibilities:
• To approve the IPs prepared for the pilgrimage destinations and heritage cities
• To ensure that there is no duplication of projects
• To converge the efforts put in by various Ministries on projects that would fall in the
Integrated Plan, if any
• Enabling a platform for various participating Ministries to exchange ideas and suggest mid-
course corrections, if any
5.2.2. State IPAC
A committee chaired by State Tourism Secretary and consisting of following indicative
members:
1. Principal Secretary, State Tourism Co-Chair
2. District Magistrate Member
3. Municipal Commissioner Member
4. Mayor Member
5. MP/MLA Member
6. District Town Planner Member
7. District Tourism Officer Member

Key responsibilities:
State IPAC shall approve the Integrated Plans (IPs) for the integrated development of
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 heritage cities prepared by the State tourism departments. Following shall be the
responsibilities:
• To approve the IPs prepared for heritage cities by the State tourism department.
• To approve the DPRs on the basis of the identified projects in the approved IPs that shall
be prepared by the State tourism departments before these are submitted to the center
for sanction approvals.
• To ensure that there is no duplication of projects.
• To facilitate coordination between the State and the center for the IP approvals of heritage
cities.

5.3. Central Sanctioning & Monitoring Committee (CSMC)

Central Sanctioning & Monitoring Committee (CSMC) is responsible for sanctioning of
the projects submitted by the Mission Directorate and regular monitoring of the progress of
the implementation. Please refer below table for composition of the committee.
1. Secretary, M/o Tourism Chairperson
2. Financial Advisor, M/o Tourism Member
3. Additional Secretary, M/o Tourism Member
4. ADG/JS, M/o Tourism (Member Secretary, NSC) Member
5. Joint Director General (Archeological Survey of India) Member
The committee may invite other representatives of other Ministries, if required.

5.4. Mission Directorate (MD)

Mission Directorate shall be headed by Member Secretary (Joint Secretary/Additional
Director General, Ministry of Tourism, NSC), as the nodal officer. Mission Directorate shall act
as secretariat to Central Sanctioning & Monitoring Committee (CSMC) for processing the
proposal for approvals for the identified projects and reporting the progress of implementation
to the said committee at regular intervals.
Please refer below table for composition of the Mission Directorate.
1. Joint Secretary/Addl. DG (Member Secretary, NSC) Chairperson
2. Director/OS, Finance/Financial Controller Member
3. Secretary, Tourism of the concerned State Member
4. Representatives of other concerned Ministries Member
5 Joint Director General (Archeological Survey of India) Member
6. Director/DDG/Under Secretary PRASHAD Division, MoT Convener
7. Regional Director Special Invitee
Key responsibilities:
Mission directorate shall assist Central Sanctioning & Monitoring Committee (CSMC) to
carry out following key responsibilities:
• Assisting CSMC in identification of projects in consultation with the State/UT Governments
and other stakeholders.

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• Appointment of the Project Management Consultant (PMC) in consultation with CSMC.
• Outsourcing of independent specialized agencies for appraisal of DPRs (if required)
• Ensuring effective coordination with the State Governments/ UT administrations and other
stakeholders, Implementing agencies, etc., for effective implementation of the scheme in a time
bound manner.
• Sanction of projects approved by the Sanctioning Committee and release of funds to the identified
agencies.
• Capacity development of States/UTs and other implementing agencies for undertaking various
activities relating to identified circuits and destinations therein through setting up of Project
Management Units (PMUs), if required.
• Consultation with the concerned administrative Ministries, wherever required, will be done on the
project components under the scheme.

5.5. National Program Management Consultant

The PMC shall be a National Level Consultant appointed by the Mission Directorate to provide
technical support for implementation of scheme
Key responsibilities:
• National PMC shall act as the technical advisory arm of the Mission Directorate.
• Preparation and revision the program toolkit and proforma as per the guidelines of Ministry of
Tourism.
• Preparation of model RFPs for selection of SPMUs.
• Assist MD for empaneling agencies for State DPR preparations.
• Assist Ministry in selection of important pilgrimage destinations and heritage cities.
• PMC shall do joint site visit with State/ UT officials post concept presentation.
• Preparation of Integrated Plan/Detailed Perspective Plan (DPP) for the identified pilgrimage
destinations.
• Evaluation of Detailed Project Reports (DPRs) submitted by State/ UT Governments.
• Co-ordination and providing handholding support to the State/ UT Governments for timely
submission of the DPR in compliance with the guidelines and toolkit.
• Present the project proposal in the MD and CSMC meetings.
• Regular maintenance of both online and offline system (MIS) for scheme monitoring.
• Submission of periodical progress report to the Mission Directorate for monitoring of the
projects.
• Conduct workshop of stakeholders to be held to discuss various aspects of project like
sustainability/ environmental impact, convergence of efforts from various Government
agencies and its recommendation to be incorporated in the DPR.
• Monitoring of the project implementations that includes regular site visits, preparation of
status reports etc.

5.6. State/UT Governments

State Government shall be represented by Department of Tourism and its apex official for
responsibilities as mentioned below:
• Assist National Program Management Consultant (PMC) in preparation of Detailed
Perspective Plan (DPP)/ Integrated Plan (IP) for the identified sites/destinations for
pilgrimage rejuvenation only

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• Select State Project Management Units (SPMU) of national repute with similar experience based
on the model RFP guidelines prepared by the Mission Directorate.
• Develop the Integrated Plan (IPs) for integrated development of heritage city and take approvals
from State IPAC and National IPAC respectively.
• State shall make the concept presentation on the proposed project to the Ministry of Tourism
chaired by Secretary Tourism and co-chaired by ADG/JS, M/o Tourism. Concept presentation shall
include details of identified projects under DPP/IP with operations and maintenance plan.
• Preparation of Detailed Project Reports (DPRs) on the proposed project from the IPs. State
Government /UT should prepare comprehensive DPRs for respective identified projects in
consultations with the respective administration, local bodies, and other stakeholders (Shrine
authorities, NGOs, and societies etc. as applicable). DPRs should be prepared on the basis of DPR
toolkit prepared by the Mission Directorate, detailed cost estimates based on Schedule of Rates
(SOR) prescribed by the CPWD/State PWD and quotations for non- scheduled items. The DPRs
should include inter alia:
• Project Structuring (Capital structuring, implementation framework).
• Components meant for private sector or joint sector investment and possible financial
linkages.
• Identification of sources of funds from various Government schemes/private sector.
• The necessary arrangements for land parcels like signing Memorandum of Understanding
(MoU), getting in-principle approval and letter of acceptance from respective land title
holders.
• Submission of project DPR incorporating the suggestions and corrections received from MD and
CSMC along with the necessary documents and undertakings as per the PRASHAD program toolkits.
• Nominate implementing agency for PRASHAD project implementation.
• Facilitate coordination between implementation agency and Ministry of Tourism.
5.7. State Project Management Unit (SPMU)
SPMU shall provide the technical and project management support to the State tourism
department with following key responsibilities:
• Preparation of Integrated Plan (IP) for integrated heritage city development.
• Carryout due diligence and pre-feasibility study for identifying the planned projects.
• Present the heritage city development plan to the State IPAC for State approvals.
• Provide handholding and management support to the State tourism departments.
• Assist the State tourism departments for selection of consultants for preparation of DPRs from the
empaneled list issued by the Ministry of Tourism, GoI.
• Ensure timely preparation of DPRs, processing and implementation monitoring.
• Monitor the project implementation and act as the technical arm of the State tourism department
for the scheme.

5.8. Implementation agency (IA)

The projects identified under this scheme shall be implemented through the identified
agencies by the respective State/ UT Governments. The implementing agency should be
necessarily State Government agency or State public sector undertaking or any central agency
and without any financial pendency with Ministry of Tourism. The agency shall be responsible
for implementation of the sanctioned projects in collaboration with shrine authority under
State financial control.
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6. Standard Approval Procedures
6.1.1. Standard Procedure for Approval of Integrated Plans (IPs)
• SPMU would prepare the respective plan in consultation with State tourism department
and other relevant stakeholders.
• SPMU would present the plan to the State IPAC for approvals.
• State tourism department would present the plan to National IPAC for approvals.

6.1.2. Standard Procedure for Sanction of Detailed Project Reports

Post approval of the IPs, the State Government shall prepare the Detailed Project Report
on the identified projects and submit the DPR to the Mission Directorate for approval.

7. Selection criteria for pilgrimage sites/ destinations

Great centers of pilgrimage attract visitors from widely dispersed cultural backgrounds
and geographic locations, often enabling them to commemorate the origins of their particular
faith. The origin faith and lineage also carry historic and heritage value to the pilgrimage
destinations. India land of origin for many religions and faith, rich in culture and diversity.
Many religions emerged as part of historic migrations, invasions, and confluence of cultures &
ethos.
The centers of pilgrimage are well established and spread across all geography of the
country. Selection of these pilgrimage centers for the scheme are based on following
parameters and shall be yearly reviewed:

7.1. Pilgrimage footfall

Tourism footfall to any particular pilgrimage destination gives an idea about number
of tourists visiting that particular destination and its importance on national pilgrimage map.
Hence the pilgrimage footfall shall be considered as an imperative criteria for selection of
destinations under the scheme.

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 7.2. Cultural, historical & heritage importance of the places
These destinations have diverse cultural backgrounds and faiths along with historical
values, these factors should be deployed for selection of destinations under the program. The
framework of the scheme is prepared in a way to cover all important destinations of various
faiths.

7.3. Status on existing level of development

Existing level of development shall encompass the State and center initiatives for
development of physical and social infrastructure in pilgrimage footprint of destinations to be
considered under PRASHAD Scheme.

7.4. Resident population of the destination

Existing population of respective pilgrimage destination shall be considered as one of
the criteria for selection of pilgrimage destination. Population is directly proportionate to the
area under the local Government and carrying capacity of destination to handle the influx of
pilgrims.

7.5. Credibility of Implementation

Credibility of implementation is an important criteria for selection of destination. Credibility of
implementation can be evaluated through the UC pendency of State/ UT Governments and its
implementing agencies for project sanctioned by Ministry of Tourism. This indicator also needs
to be deployed for prioritizing destinations. States without any UC pendency shall be given
higher priority in selection criteria.

7.6. Parity for pan India development in selection of destinations

The final list of destination shall be prepared by prioritizing destinations from the States
which are not covered in the existing list of destinations. At present PRASHAD scheme is
covering 26 States/UTs. Collectively the list shall cover most of the States in the country on
pilgrimage map. Considering the geographical area and current scale of the program
identification of at least one destination in each State shall be given preference.
The methodology to be followed for the selection of pilgrimage sites/ destination can
be referred at Annexure 1.

8. Selection criteria for integrated development of heritage cities

8.1. Tourist footfall
Tourist footfall to heritage destinations within the city gives an idea about number of
tourists visiting city and its popularity. Hence the tourist footfall shall be considered as an
imperative criteria for selection of these cities.

8.2. Accreditation of heritage destinations in the cities

The historic destinations and monuments are accredited internationally and nationally
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by UNESCO and ASI respectively. Thus, the criteria are important in prioritization of one
heritage city over the other.

8.3. Number of heritage monuments

Heritage value of the city depends on the availability tangible heritage assets and
intangible heritage resources. Nationally list of ASI monument could be considered as
authentic document to map the heritage assets of the cities.

8.4. Funding Need

Many central and State Government schemes are under pipeline. This criteria is
important to ensure provision of central financial assistance (CFA) to the heritage cities where
it is critically required. This criteria would eventually enable segregation of the urban
infrastructure from the tourism infrastructure initiatives.

8.5. Credibility of Implementation

Credibility of implementation is an important criteria which also accesses the capacity
of the States/ UTs to implement mega projects. Credibility of implementation for heritage
cities should be evaluated through the UC pendency of State/ UT Governments and its
implementing agencies for project sanctioned by Ministry of Tourism. This indicator also needs
to be deployed for prioritizing destinations. States without any UC pendency shall be given
higher priority in selection criteria.
The methodology to be followed for the selection of pilgrimage sites/ destination can
be referred at Annexure 2.

9. Admissible components

An illustrative and indicative list of components that shall be eligible for Central
Financial Assistance (CFA) under the scheme is given below:

9.1. Infrastructure Development

• Toilet, cloak room facilities and waiting rooms at prominent destination points and if
necessary, at city entry points like bus stands, railway stations etc.
• Informatory/Directional signage (if possible, these could be funded by the private sector).
Guidelines should be formulated in the DPR toolkit to maintain design uniformity and
enhancing aesthetics.
• Development/up-gradation of destination entry points viz. passenger terminals (of road,
rail, and water transport). Basic conveniences like tourism Information/Interpretation
Centers with ATMs/money exchange counters shall be provided at these entry points.
• Illumination of monuments/ pilgrimage structures.
• Provision of wayside amenities with emergency vehicle breakdown, repair facilities and
infrastructure provision for stationing of caravan vehicles for tourists. The area and
capacity shall be worked out as per the daily average footfall of the tourists to respective
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 destinations.
• Parking facilities for two-wheelers, cars, buses, and caravans.
• Improvement of road connectivity leading to prime destinations up to the last mile
connectivity only.
• General improvements such as landscaping (includes trees and shrubs), water fountains,
fencing, lighting, pavements/walkways/pathways/driveways, seating facilities/shelters,
drinking water points, garbage bins, storm water drainage and treatment facilities for
sewerage/effluent treatment are permissible within the pilgrimage footprint of the
destination.
• First Aid Centers (Including Indian Medicines System).
• Improvement in communication through telephone booths, mobile services, and internet
connectivity, Wi-Fi hotspots.
• Construction of watch tower (for surveillance and security purpose), rain shelters (for
pilgrims)
• Equipment for tourism activities such as sound and light shows to enhance the
spiritual/heritage experience of the identified destinations
• Construction of open-air theatres and amphitheaters
• Construction of craft haats /bazaars/ souvenir shops/cafeteria.
• Procurement of equipment for eco-friendly modes of tourist transport which should be
plied on last mile connectivity to the prime assets and on pedestrianized roads to facilitate
movement of old age, differently abled people, and children (below 8 year)
• Shoreline development & rejuvenation of natural water bodies such as rivers, lakes,
streams, and river fronts of holy/ historic significance and shall be considered in
consultation with M/o tourism and other allied Ministries.
• Helipad, ropeways required for tourist in the identified destinations where other
transportation connectivity is weak.
• Use of renewable sources of energy and access to clean technology for tourist
infrastructure for environmental care.
• External infrastructure such as water supply, sewerage, drainage, electricity, and roads.
• Any other activity directly related to tourism and required for development of the
identified pilgrimage sites/ destinations or integrated tourism development of heritage
city.

9.2. In addition to the above, following infrastructure components would be

permissible only for integrated tourism development of heritage city:
• Evaluation and up-gradation of civic infrastructure around heritage / cultural / tourist areas
and façade improvement of surrounding areas with part funding mechanism to be worked
out in discussion with local Governments.
• Development of Heritage walks, street-scaping activities not limited to underground
cabling, street furniture, storm water drainage and walkways/pathways.

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• Support cultural events, fairs and festivals and associated infrastructure.
• Development of museums, interpretation centers and socio-cultural spaces.
• Restoration/ conservation of a historic structure/ monument.
• Revitalization of heritage areas/ precincts & conservation of monuments etc.
• Adaptive re-use plans for eligible structures.

9.3. Capacity Development, Skill Development & Knowledge Management

• Special courses to address the skill gaps identified by the State in the Detailed Project
Report (DPR)
• Short duration skill development training program in association with other schemes of
GOI.
• Emphasis on tapping the local potential and expertise in indigenous art and crafts.
• Documentation and preservation of the knowledge base in tourism for future use.

9.4. Online Presence

A. GIS based interactive and intelligent portal development and mobile applications,
providing:
• Location based services
• Location based contents
• Booking facilities through E-Commerce application
• Linkages to applications of existing service providers
• Support dashboards for tourists as well as operators
• Decision support reporting for the department
B. Project Monitoring and Management System
• Online Dashboard for project monitoring and management system
• Tracking project progress through online UC submissions
• Tracking procurements through e-procurement system
• Tracking completion of milestones
• Tracking issues relating to escalation and variances.
C. Permission Based knowledge Portal
• Create a back-end digital library for content preservation.
• Push relevant research papers to appropriate institutions for future references.
D. Data Analytics and Reporting

9.5. IEC Component

10% of the scheme allocation is earmarked for IEC components
10. Inadmissible components

The Central Financial Assistance (CFA) under this scheme shall not be admissible for
the following components. The list of components is indicative and shall be evaluated case to

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case as per the details provided by State Governments.

10.1. For projects on pilgrimage destinations

• Land acquisition for development.
• Resettlement and rehabilitation package, operation and maintenance and management of
the assets created.
• Improvement/ investments in assets/ structures owned by private agencies other than
shrine authorities at pilgrimage centers.
• Construction activities like dredging, de-silting, check dams, conservation, and restoration.
• Accommodations like hotels and guest houses etc.

10.2. For projects on integrated development of heritage cities

• Land acquisition for development.
• Resettlement and rehabilitation package, operation and maintenance and management of
the assets created.
• Improvement/ investments in privately owned heritage assets/ structures.
• Construction activities like dredging, de-silting, check dams
• Accommodations like hotels and guest houses etc.
• Cultural events, fairs, and festivals other than heritage nature and associated temporary
infrastructure arrangements or material procurements.
• Non-conforming adaptive uses as per the master plans and other statutory documents and
adaptive reuses with commercial development proposals
• Revitalization and restoration of monuments or areas under litigation and encroachments.

11. Monitoring

The entire project would be 'outcome oriented' rather than 'process oriented'. Targets
would be pre-set and benchmarked before being accepted as yardsticks to measure project
progress.
• Ministry of Tourism would periodically monitor the scheme through designated officers.
• Both online & offline mode monitoring would be done.
• Implementing agencies shall submit the updated Monitoring Framework by 5th of every
month.
• On the receipt of CC and UC for 3rd installment of funds released internal audit will be
carried out.

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 The stages involved under the PRASHAD project monitoring are as follows:

State Government & State

Implementing Agency Ministry of Tourism

12. Funding Mechanism

12.1. Funding Pattern
• The scheme is central financial assistance (CFA) and shall be 100% centrally funded for the
project components undertaken.
• The funds would be released to the identified implementing agencies by State
Government/ UTs. The powers to sanction funds in the scheme shall be strictly in
conformity with the GFRs and the directions issued by the M/o Finance from time to time.
All the proposals will be routed through IFD of M/o Tourism and after obtaining their
concurrence.
• Up-to 10% funds shall be earmarked for IEC components like workshops, seminars,
publications, stakeholder outreach, skill development etc.
• Voluntary funding available from Corporate Social Responsibility (CSR) initiatives of Central
Public Sector Undertakings and corporate sector shall be assured through convergence
with other schemes of Central and State Governments.
• Suitable Public-Private Partnerships (PPP) to be taken up for improved sustainability of the
projects.
• The Part Funding (PF) may be provided under the Mission in accordance with the relevant
guidelines/instructions of the Govt. The scope of part funding would be limited to the
pilgrimage infrastructure facilities and components and subcomponents shall be
independent and easily implementable.
• A Special Purpose Vehicle (SPV) and project monitoring committee may be created for the
purpose, wherever feasible. The undertaking would spell out specific milestone to be
achieved indicating the works to be undertaken by them in physical and financial terms.
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 The financial terms in the DPR should also include State Government’s contribution
towards land, rehabilitation package and Operation and Maintenance (O&M).
• The State Governments would submit undertaking with Government of India indicating
their commitment to the scheme by ensuring that the operation and maintenance of the
identified and developed projects should be the responsibility of the respective State
Government or the respective asset owners. The DPR should also include detail O&M plan
along with periodical O&M cost amount for all the assets created under the scheme.

12.2. Fund Disbursal Plan

Funds sanctioned to the State Governments/UTs will be released as under:
• 1stInstallment: 30% of the project cost on submission of work orders, Good for
construction DPR with GFC statuary approvals from respective agencies for construction
initiation and detailed BOQs
• 2nd Installment: 30% of the project cost after receipt of utilization certificate for the first
instalment
• 3rd Installment: 25% of the project cost after receipt of utilization certificate for the second
instalment
• 4th Installment: 10% of the project cost on completion of the work and receipt of utilization
certificate
• 5th Installment: 5% of the project cost after successful O&M of Toilet, TFC, Cafeteria
facilities for one year as certified by an independent agency
Implementation agencies can approach Ministry of Tourism for release of next
installment of funds after submission of UC for 75% of released funds.
For Himalayan and North-Eastern States, different funding pattern and duration of
projects may be determined by the Mission Directorate keeping in view the difficulties in these
areas.

13. Program Duration

This scheme is proposed to be implemented as a Central Sector Scheme during

the 14th finance commission period i.e., March 2020 and beyond.

14. Management of Assets Created

The tentative operation and maintenance costs of the projects shall be worked out by
State Governments/ UTs at the time of preparation of DPR & emphasis shall be given to working
out options for sustainable operation and maintenance models through innovative revenue
generation options and involvement of Government Trusts/ Committees, Private Sector/
NGOs/Tour Operators in operation and maintenance. In maintenance of the assets created,
the experience and expertise of the local bodies would be used for the maximum possible
extent. However, the PPP partner would be explored for operation, maintenance and
sustenance of the facilities created.

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15. Expected Outcomes

The outcome of the integrated development of Pilgrimage centers on a mission mode shall
be regularly evaluated and measured on the following parameters:
• Increase in tourist footfall.
• Employment generation.
• Enhancement of awareness and development of skills & capacity to augment tourism with
value added services.
• Increase in private sector participation in the identified tourist destinations.
• Integrated development of heritage cities.

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ANNEXURES

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 Annexure 1
Methodology for selection of pilgrimage sites/destination based on the criteria as per
section 7 of the guidelines
Weightage for all the parameters is given in below table:

Sl. No. Parameter for selection of pilgrimage sites/destination Weightage (In %)

1 Pilgrims’ footfall
A Average daily footfall 20
B Peak procession footfall 20
Cultural, historical & heritage value of the places at national/ State
2 20
level
3 Status on existing level of development 10
4 Resident population of the destination 10
5 Parity for pan India development in selection of destinations 10
6 Credibility of Implementation 10
Total 100

1. Pilgrims Footfall
Pilgrims footfall is bifurcated into Average daily footfall and peak footfall. Both footfalls
have been given equal weightage of 20% each.
A. Average Daily Footfall
Average daily footfall is calculated as per the formula given below; Average daily footfall = total
cumulative footfall of the year/365.
The daily average footfall is divided into five ranges. Higher weightage has been given to the
destinations with higher footfall.
10,001- Above
Criteria Below 2,000 2,001-5,000 5,001-10,000
25,000 25,001
Average daily
footfall of 1 2 3 4 5
preceding year

B. Peak Footfall
Peak footfall is also important parameter for the destination selection. Higher
weightage has been given to the destinations with higher peak procession footfall per day.

50,001- 75,001- 1,00,001- Above

Criteria Below 50,000
75,000 1,00,000 2,50,000 2,50,001
Peak procession
1 2 3 4 5
footfall per day

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 2. Cultural, historical & heritage importance of the places
Cultural, historical and heritage importance of the destination is important criteria in
destination selection. The heritage value is dependent on the architectural style of main shrine,
whether it is listed State archeological department’s monument or ASI monument. Cultural
value is more the no of faiths/ sects/ sub-sects covered by the particular pilgrimage destination.
Some destinations might cover more than one religion. Considering these aspects destinations
shall be divided in to three categories for its importance like high, medium and low.

Criteria High Medium Low

Cultural, historical & heritage
importance of the places 5 2 1

3. Status of Existing Level of Development

Level of existing development at the destination is an important parameter for
identification of destination. Places with already developed infrastructure shall have lower
priority compared to destinations lacking even basic infrastructure to support tourism at the
destination.
Very highly Highly Less Very less
developed developed Developed developed developed
destination destination destination destination destination
Level of development
at the destination# 1 2 3 4 5
# Destination shall be evaluated based on various basic tourism infrastructure like approach road, area illumination,
signage, availability of public conveniences, security, solid waste management system at destination etc.

4. Resident Population of the Destination

Resident population is necessary factor as it assures employment in tertiary sector
which is necessary for service delivery in hospitality and tourism sector. Size of resident
population is an indicator of development, higher the population higher the probability of
provision of basic physical infrastructure. Thus, higher resident population will assure CFA in
tourism infrastructure than basic urban infrastructure in the project DPR.
Destination with higher resident population shall be given higher priority during
selection process.

Population Population Population Population Population

1Crore or 10 Lacs to 1 lacs to 10 20000 to 1 below
more 1Crore Lacs Lacs 20,000
Population of the sites/
destination 5 4 3 2 1

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 5. Parity in selection of destinations
State Size
Number of districts are indicator of the size of the State higher the number of districts
larger the area and population of the State.
Number of districts are:
Less than 10 11 to 20 21 to 30 31 to 40 Above 41
districts districts districts districts districts
Size of State 1 2 3 4 5

States which are not covered under the scheme shall be given priority in destination
selection. However, the number of destinations shall be looked in conjunction with the size of
the State.
Existing Destination Coverage
4 identified 3 identified 2 identified 1 identified No identified
destinations destinations destinations destinations destination
Number of
identified
destinations 1 2 3 4 5
in the State

6. Credibility of Implementation
Credibility of implementation shall be measured through Utilization Certificate (UC)
pendency with State and it’s implementing agencies against sanctioned project by Ministry of
Tourism. Destination with no pendency shall be given higher priority over other destinations.
Existing UC pendency with
State and its implementing No UC pendency with State
agency and its implementing agency
Number of identified
destinations in the State 0 5

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 Annexure 2
Methodology for selection of heritage cities based on the criteria as per section 8 of the
guidelines
Weightage for all the parameters is given in below table:
Weightage
Sl. No. Parameter for selection of pilgrimage sites/destination
(In %)
1 Tourist footfall
A City level tourist footfall 15
B Heritage destination level tourist footfall 20
2 Accreditation of heritage destinations in the city 20
3 Number of heritage monuments in the city 20
4 Need of funding 15
5 Credibility of Implementation 10
Total 100
1. Tourists Footfall
Tourist footfall is bifurcated into city level footfall and heritage destination/ monument
level footfall. Both footfalls have been given equal weightage of 15% each.
A. City level footfall
Average city level daily footfall shall be calculated as per the formula given below;

City level average daily footfall = Total cumulative footfall of the year/ 365
The daily average footfall is divided into five ranges. Higher weightage has been given to the
destinations with higher footfall.
10,001- Above
Criteria Below 2,000 2,001-5,000 5,001-10,000
25,000 25,001
Average daily
Footfall of 1 2 3 4 5
preceding year

B. Destination level tourist footfall

Average daily footfall to the ticketed monument shall be calculated basis the data
available with Archeological Survey of India (ASI) or State Archaeological department
Above
Criteria Below 500 501-1,000 1,001-3,000 3,001-5,000
5,001
Average daily
1 2 3 4 5
footfall

2. Accreditation of monuments
Accreditation by UNESCO and ASI will be one of the deciding criteria for the ranking of

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the cities. Higher weightage is given to the city with higher number of listed monuments.

Criteria 1-2 2-4

ASI Monument 3 5
UNESCO Monument 5

3. Number of heritage monuments in the city

Number of listed heritage monuments is important for ranking of the cities. Higher
weightage is given to the city with higher number of listed monuments by any of the three
agencies viz. UNESCO, ASI, and State Archeological department.
Criteria Below 5 6-10 11-30 31-50 51 and above
Heritage
1 2 3 4 5
monuments

4. Funding Need
Total amount of earlier fund received from the State and central Government scheme
for the city
INR 51
Below INR 1 INR 1-10 INR 11-30 INR 31-50
Criteria Crore
Crore Crore Crore Crore
and above
State and Central
Government 5 4 3 2 1
scheme

5. Credibility of Implementation
Credibility of implementation shall be measured through Utilization Certificate (UC)
pendency with State and it’s implementing agencies against sanctioned project by Ministry of
Tourism. Destination with no pendency shall be given higher priority over other destinations.
Existing UC pendency with State No UC pendency with State and
and its implementing agency its implementing agency
Number of identified
destinations in the State 0 5

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