The main limitation under which government program operate is that they have very little capacity to extend to areas beyond the last level functionary or institution. In the context of education for instance government programs rarely have the capacity to cover issues beyond the school.
But, as the MVF experience shows, there is a vast area between and the school and the household that needs to be bridged if any program relating to elimination of child labour and universalisation of education is to be attempted. This is a critical area that is often out of bounds for government machinery. Thus while a good government program can, even when implemented effectively cover children already in school, an equal number of children not in school cannot be accessed.
It is this aspect that can be best dealt with by an outside agency.