Transcript Slide 1

Appraisal of procedures and processes of
NREGA in Orissa
Interim Report
Presented
by
Dr. N C Nayak
Department of Humanities and Social Sciences
Indian Institute of Technology
Kharagpur
To
The Ministry of Rural Development
Government of India, New Delhi
Background

World’s one of the largest development programs
Objectives:

To enhance livelihood securities via wage employment to the unskilled
labour force.

To act as a strong safety net for the poor in the event of lack of alternative
employment opportunities.

To regenerate the rural natural resource base for sustainable livelihood by
carrying out soil and water conservation activities.

To empower the poor through the provision of a right-based law.
The other key attributes:

Time bound guarantee

Labour-intensive work

Decentralized participatory planning

Women empowerment

Work site facilities

Transparency and accountability through the provision of social audits and
right to information.
Few Pertinent Questions?

The design of the NREGS is unique being largely demand
driven.

Is it necessarily so, particularly, when there are wage
differentials and irregularities in getting jobs and hence a
tradeoff between jobs under NREGS and that in other areas?

Even if there is demand for work, do the GPs have enough
scope to generate sufficient employment opportunities?

Are the procedures for registration, issuance of job cards, and
application for employment followed properly so that people
are not demotivated to work under the Scheme?

What should be done to bring in more people under the ambit
of the scheme to make it a successful poverty alleviation
programme?
Study Area, Data Collection and Methods



This study is based on an in-depth fieldwork in Orissa.
Field survey was carried out during 1 February-15 March 2009.
Districts under study: Mayurbhanj and Balasore
Rationale:


Mayurbhanj district: first phase
Balasore district: second phase.
Mayurbhanj is amongst the most backward districts of the state

Tribal dominated with primary occupation being agriculture, daily labour and
gathering of forest produce.

One of the foremost districts to disburse payments through banks.

Balasore has more non-tribal population.

Thus the needs, interests, socio-cultural dynamics, etc are supposed to vary.
Study Area, Data Collection and Methods

The selection of districts was made in consultation with the
state level project director of NREGS

In consultation with the district level project director, two
blocks from each district were selected on the basis of
criteria like demographic characteristics, fund utilization,
nature of activities undertaken, etc.


The same exercises were repeated at the block level.
Secondary data concerning fund utilization, nature and
status of works carried out under NREGA, number of jobs
generated across different social and economic groups of
people were collected and analyzed.
Study Area, Data Collection and Methods

In consultation with the block level officials, four Gram Panchayats
from each block were selected.

Criteria used: Nature and status of works, demographic factors, and
amount of money spent

In each block, two Panchayats were selected where works were
continuing and other two where works were already over.

Selected NREGA works were of different types.

Along with secondary information on the performance of
Panchayats, expert interviews with block level officials were held to
get an overall idea about the performance of the Panchayats.

Out of four Gram Panchayats from each block, two Panchayats were
from relatively better performing ones and the other two from not so
good ones.
Tools Used
Four different sets of questionnaires:
 (i) Job Card Holder Questionnaire
 (ii) Non-Job Card Holder Questionnaire
 (iii) Sarpanch Questionnaire
 (iv) Investigator Questionnaire
Tools Used

The collected information from job card holders were carefully verified
with the information provided in the muster rolls, job cards, asset
registers, employment registers, fund utilization registers, complaint
registers and other relevant records in all Panchayats and blocks.
Sample Size

10 Job card holders and 6 non-Job card holders from each Panchayat

In total 160 Job card holders and 96 non-Job card holders were
surveyed.
Preliminary Findings
Table 1: Demographic Profile of the Job Card Holders
Sex
Caste
Average Land
Holding
Education of the Respondents
Panchayat
M
F
SC
ST
OBC
GC
No
Pr
Mid
Sec
HS
and above
Mean(Land)
Ajodhya
100
0
20
0
0
80
0
30
10
60
0
1.04
Balidiha
80
20
10
90
0
0
60
10
0
10
20
2
Debsole
90
10
55.6
33.3
11.1
0
60
30
10
0
0
0.69
Gadighati
90
10
80
0
20
0
20
20
10
40
10
0.73
Jhatioda
80
20
0
100
0
0
50
20
0
30
0
1.14
Mahispatta
90
10
0
100
0
0
30
40
10
20
0
0.92
Mahulia
10
0
0
90
10
0
10
50
40
0
0
1.54
Narsinghpur
90
10
50
30
0
20
60
20
10
10
0
0.59
Paikabasa
91.67
8.33
0
41.7
50
8.3
50
25
0
8.3
8.3
0.83
Raghabpur
90
10
20
80
0
0
80
20
0
0
0
1.09
Sinduragaura
70
30
40
20
30
10
80
10
0
0
10
1.13
Total
88.39
11.61
24.3
53.2
11.7
10.8
45.5
25
8
16.1
4.5
1.04
Demographic Profile
Out of 11 Panchayats for which data are ready for analysis
Caste-wise Distribution:

5 panchayats: ST dominated

1 panchayat: SC dominated

Rest: a mixed population
Size of landholding:

Balidia panchayat: 2 acres (Maximum)

Gadighati panchayat: 0.73 acres (minimum)

Average for all panchayats: 1.04 acres
Level of Education
Respondents with

No formal education: 45.5%

Primary education: 25%

Middle Education: 8%

Secondary Education: 16%

HS: 4.5%
Table-2: Awareness about NREGA
Panchayat
Advance Notice for Meetings
Organization of Rojgar Diwas
No
No
Yes
Yes
Don't Know
Ajodhya
30.0
70.0
90.0
0.0
10.0
Balidiha
50.0
50.0
100.0
0.0
0.0
Debsole
30.0
70.0
100.0
0.0
0.0
Gadighati
50.0
50.0
100.0
0.0
0.0
Jhatioda
44.4
55.6
90.0
10.0
0.0
Mahispatta
44.4
55.6
100.0
0.0
0.0
Mahulia
60.0
40.0
100.0
0.0
0.0
Narsinghpur
62.5
37.5
100.0
0.0
0.0
Paikabasa
58.3
41.7
91.7
8.3
0.0
Raghabpur
60.0
40.0
100.0
0.0
0.0
Sinduragoura
90.0
10.0
100.0
0.0
0.0
Total
52.8
47.2
97.3
1.8
0.9
Awareness about NREGA



No advance notice for meetings: 53%
Situation is relatively better in Ajodhya and
Debsole.
Rojgar Diwas is never organized in sampled
panchayats.
Table-3:Registration for Job Cards
Free and Easy
Registration of
Job Cards
Time gap between registration and issue of job cards
Panchayat
No
Within
a week
Ajodhya
10.0
90.0
10.0
10.0
20.0
60.0
0.0
90.0
0.0
0.0
0.0
Balidiha
0.0
100.0
20.0
40.0
10.0
30.0
0.0
60.0
30.0
0.0
10.0
Debsole
10.0
90.0
30.0
20.0
20.0
30.0
0.0
80.0
20.0
0.0
0.0
Gadighati
10.0
90.0
10.0
20.0
0.0
70.0
0.0
100.0
0.0
0.0
0.0
Jhatioda
0.0
100.0
20.0
50.0
0.0
30.0
0.0
90.0
10.0
0.0
0.0
Mahispatta
20.0
80.0
10.0
20.0
10.0
20.0
40.0
60.0
0.0
0.0
40.0
Mohulia
10.0
90.0
30.0
10.0
20.0
30.0
10.0
77.8
0.0
22.2
0.0
Narsinghpur
40.0
60.0
10.0
0.0
20.0
40.0
30.0
60.0
0.0
0.0
10.0
Paikabasa
25.0
75.0
16.7
33.3
0.0
33.3
16.7
100.0
0.0
0.0
0.0
Raghabpur
20.0
80.0
50.0
0.0
0.0
30.0
20.0
100.0
0.0
0.0
0.0
0.0
100.0
30.0
20.0
10.0
30.0
10.0
44.4
22.2
22.2
0.0
13.4
86.6
21.4
20.5
9.8
36.6
11.6
79.1
7.3
3.6
5.5
Sinduragaura
Total
Yes
Within
two weeks
Within
three
weeks
Within
a
month
Custodians of Job Cards
More
than a
month
Self
Head of
the
Family
Ward
Member
Sarpanch
Registration for Job Cards
Overwhelming majority is satisfied with the registration
processes.
 To them, it is easy and free.
 About 90% receive their job cards within a month.
 However, the situation in Mahispatta, Narsighpur and
Raghabpur is not that encouraging.
Custody of job cards
 Self or Head of the Family: 86%
 Others (Sarpanch and Ward Member): 14%
 In Gadighati, Paikbasa, and Raghabpur, all Job Cards are with
job card holders.

In Mahisapatta: for 40% respondents, job cards were with
sarpanchs
 In Mohulia and Sinduragaur: for 22%, job cards were with the
ward members.

Table 4: Application for Employment
Average Time Gap between
Application and Allotment of
Works
Applications Submitted
Panchayat
No
Yes
Average Days
Ajodhya
30.0
70.0
16
Balidiha
60.0
40.0
38
Debsole
30.0
70.0
27
Gadighati
50.0
50.0
77
Jhatioda
80.0
20.0
20
Mahispatta
66.7
33.3
60
Mohulia
75.0
25.0
23
Narsinghpur
70.0
30.0
15
Paikabasa
75.0
25.0
23
Raghabpur
70.0
30.0
12
Sinduragaura
50.0
50.0
53
Total
59.6
40.4
31
Application for Employment







Majority of the job card holders did not apply for employment.
The proportion was significantly large in the panchayats like
Jhatioda, Mohulia, Paikabasa and Narsinghpur.
Average waiting time: 31 days
Worst Performers: Gadighati, Mahispatta Sinduragaura
Best performers: Raghabpur, Narsinghpur, Ajodya
Wide time lag may demotivate people from applying for
employment.
But, in Jhatioda, Mohulia, Paikabasa and Narsinghpur, where a
large section people did not apply for employment, perhaps
some other factors might have demotivated them as the time lag
was found to be sufficiently low therein.
Table 5: Procedures for Execution of Works
Panchayat
Provision of a list of
Public Works
Provision of Public Display
N
AL
Y
DK
ST
RL
Average
Mandays
Knowledge about works
NV
PD
GPO
ER
FV
Ajodhya
0.0
57.1
42.9
75.0
25.0
0.0
0.0
0.0
55.6
33.3
11.1
34
Balidiha
50.0
50.0
0.0
33.3
33.3
33.3
0.0
0.0
10.0
50.0
40.0
38
Debsole
50.0
50.0
0.0
40.0
20.0
40.0
0.0
0.0
55.6
22.2
22.2
47
Gadighati
80.0
20.0
0.0
100.0
0.0
0.0
0.0
0.0
44.4
44.4
11.1
55
Jhatioda
50.0
50.0
0.0
80.0
0.0
20.0
0.0
11.1
22.2
44.4
22.2
32
Mahispatta
85.7
14.3
0.0
50.0
0.0
0.0
50.0
20.0
10.0
20.0
50.0
12
Mohulia
66.7
33.3
0.0
25.0
0.0
25.0
50.0
0.0
0.0
77.8
22.2
45
Narsinghpur
71.4
28.6
0.0
100.0
0.0
0.0
0.0
0.0
55.6
22.2
22.2
22
Paikabasa
66.7
33.3
0.0
50.0
25.0
0.0
25.0
8.3
16.7
41.7
33.3
47
Raghabpur
70.0
30.0
0.0
66.7
33.3
0.0
0.0
0.0
50.0
30.0
20.0
46
Sinduragaura
50.0
50.0
0.0
0.0
0.0
100.0
0.0
0.0
0.0
0.0
100.0
60
Total
59.4
37.5
3.1
51.3
12.8
25.6
10.3
3.8
28.3
34.9
33.0
40
N – No; Y – Yes; DK – Don’t Know; AL – Always; ST – Sometimes; RL – Rarely; NV – Never; PD – Public Display;
GPO – Gram Panchayat Officials; ER – Elected Representatives; FV – Fellow Villagers
Procedures for Execution of Works
No provision of listing of public works in large no. of GPs
 Where listing is done, they are not usually publicly displayed.
Sources of information regarding the works
 GP official
 Elected representatives
 Fellow villagers.
 In the absence of public display, heavy dependence on such
sources may cause distortion of information.
 This may also be an important factor contributing to low rate of
application for employment.
 Panchayats like Gadighati, Sinduragaura, Debsole, Paikabasa,
Raghabpur have done reasonably well in terms of average
number of mandays provided.
 Mahispatta and Narsinghpur lagged far behind.

Table 6: Wage Payment
Criteria of wage payment
Panchayat
Piece
rate
Daily
wages
Is muster roll read
out?
Mode of Wage Payment
Others
Average
wages
received
Daily
Weekly
Monthly
Fortnightly
Irregularly
No
Yes
Ajodhya
20
70
10
70
0
70
20
10
0
22.2
77.8
Balidiha
70
30
0
84.5
0
50
0
40
10
70
30
Debsole
30
70
0
67
0
70
10
20
0
70
30
Gadighati
90
10
0
124.1
0
40
30
0
30
50
50
Jhatioda
90
10
0
99
10
50
0
20
20
60
40
0
90
10
49
0
100
0
0
0
37.5
62.5
100
0
0
126
0
20
50
30
0
80
20
0
100
0
70
0
50
0
10
40
70
30
Paikabasa
100
0
0
98.3
0
41.7
50
0
8.3
75
25
Raghabpur
100
0
0
134.3
0
80
20
0
0
80
20
90
10
0
93
0
70
0
0
30
90
10
63.4
34.8
1.8
92.4
0.9
56.9
17.4
11.9
12.8
65.1
34.9
Mahispatta
Mohulia
Narsinghpur
Sinduragaura
Total
Wage Payments







Wages are paid primarily on piece rate basis every
week.
Average wage is reasonably high in most of the
selected panchayats.
Two panchayats fare very badly in this front.
Wages are primarily paid through bank accounts.
However, about 17% of the respondents receive
payments in cash.
Muster roll is hardly read out while paying wages.
This may leave enough scope for corruption.
PROCEDURE OF PAYMENT
2%
2%
Bank A/C
17%
By Contractor
Donot know
6%
Cash
2%
By Gram sathi
71%
By srapanch
Table 7: Provision for Grievance Redressal
Disposal of Complaints
PANCHAYAT
Availability of Complaint Register
within a reasonable time
Availability of Help Line for
Grievance Redressal
No
No
No
Yes
Don't Know
Yes
Don't Know
Yes
Don't Know
Ajodhya
25
50
25
16.7
16.7
66.7
28.6
14.3
57.1
Balidiha
57.1
42.9
0
88.9
11.1
0
100
0
0
Debsole
33.3
66.7
0
60
40
0
44.4
55.6
0
Gadighati
50
50
0
80
20
0
70
30
0
Jhatioda
20
80
0
60
40
0
60
40
0
Mahispatta
100
0
0
100
0
0
100
0
0
Mohulia
44.4
55.6
0
70
30
0
50
50
0
Narsinghpur
100
0
0
100
0
0
100
0
0
Paikabasa
63.6
36.4
0
90.9
9.1
0
81.8
18.2
0
Raghabpur
30
70
0
55.6
44.4
0
50
50
0
Sinduragaura
25
75
0
70
30
0
70
30
0
42.5
55.2
2.3
70
25.6
4.4
66.7
29
4.3
Total
Provision for Grievance Redressal




Complaint register is hardly accessed.
Not disposed within a reasonable time.
Lack of necessary ‘Help Line’ for grievance
redressal
All these seem to hinder the success of the
Scheme.
Constraints identified
(Anecdotal Evidences from the Field)
The preliminary study finds a number of irregularities in the
execution of the programme.
A few pertinent issues:







Job cards are usually kept with panchayat level functionaries.
The common reasons cited for this act of omission are quite
naïve.
Mismatch between days entered in the job cards versus that
stated by the workers
Cases of workers working without job cards in the worksites
Irregularities in the issue of job cards and provision of
employment.
Personal rapport with sarpanchs or ward members appears to
be the deciding factor to have job cards and get employment
on regular basis.
Constraints Indentified







Instances of minors working in the worksites without having job
cards
Instances of workers engaged in works with the job cards of
others
Instances of workers selling their job cards to others at nominal
prices
Wage Payment procedures perhaps may require a relook.
Payment of wages on fortnight basis is too long.
Procedural delays due to severe manpower shortage
Lack of awareness of the rules and objectives of the NREGA
Good Practices

In one of the panchayats, local conveyance is
given to the people who turn to work even if
they travel a maximum distance of about 5
Km. This practice was found in Raghabpur
panchayat of Rasgobindpur block of
Mayurbhanj district. This is considered as an
incentive which motivates people to work
anywhere in a GP.
Recommendations and Future Interventions



There is shortage of manpower at the block level to update the
job card and muster roll entries. For which the invoice of muster
roll making is delayed which in turn leads to delay in weekly
wage payments. Block level functionaries have proposed for the
deployment of more data entry operators to avoid such type of
inconveniences.
The process of making invoice of muster rolls and issue of new
job cards can be done at the GP level, if they are provided with
computers having internet connections. The Gram Rojgar Sewak
can be trained for the said purpose.
The NREGA rules and guidelines are not well known at the GP
and even at the block level. Regular meetings should be
convened at the block offices to create awareness on NREGA
rules and guidelines with the presence of sarpanchs, ward
members, GRS, VLW/PEOs and others involved in the NREGA
projects. The meetings should also be arranged at the GP level
for the same.
Alternative Approach to NREGA





Need to break away stereotype caste structure
and political barriers
Removal of agency problem
Corrective measures to cure institutional
bottlenecks leading to corruption, delay, lack of
accountability
Removal of disincentives among the
stakeholders
Need to enhance the incentives
THANK YOU