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NATIONAL RURAL EMPLOYMENT GUARANTEE ACT 2005 Structure of the Presentation • NREGA Coverage • NREGA Process • Paradigm Shift: From SGRY to NREGA NREGA COVERAGE Backward Districts(150) (Most backward Ranked by Planning Commission) Phase I NREGA(200) (commenced 2.02.06) Phase II NREGA(130) (extended on 1.4.07) Phase III NREGA(266) (notified on 28.9.07) NREGA Process Application for Registration Step 1: Application for Registration • Unit of Entitlement is the Household. • Registration application made to local Gram Panchayat. • Application may be in a form prescribed or a plain paper • Prescribed form is free of cost and easily available at GP • Oral applications may also be submitted Verification of the Registration Application Step 2: Verification of the Registration Application The Gram Panchayat will verify the application on the basis of: (i) local domicile (ii) All household members applying for registration are adult - No discrimination is made in registration in terms of caste, creed, gender - Single Women living alone may register independently - NREGA is not confined to BPL families Registration for Job Card Step 3: After verification, the house hold will be registered • • Unit of Registration: Household (HH) The names of adult members applying will be noted Registration Register Issue of Job Card Step 4: Issue of Job Card • Basic legal document valid for five years. Enables registered household to demand guaranteed employment • Issued to a registered household as a whole • Household Job Card will have photograph & name of each registered adult member of the household on it • Cost of Job Card including photograph will be borne by the programme • Should be issued within 15 days of application. Format of Job Card • Must have space for entering vital data that must be regularly entered that includes: - Unique registration number Days of employment demanded Days worked Amount paid • Job Cards issued will be entered in a Job Card register in the Gram Panchayat Demand Process: Application for Employment Step 5. Application for Employment • Household with Job Card has the right to submit a written application for employment to the Gram Panchayat • Any member may apply: More than one member of a family may apply at the same time (subject to 100 day family entitlement) • Applicant may chose the time and duration when employment is sought • Application must state day from which employment is sought and duration • Application must be for a minimum of 15 days of employment Guarantee Process : Acknowledgement of Application for Employment Step 6: Issue of Dated Receipt • Employment application will be entered in an Employment Register in the Gram Panchayat • The Gram Panchayat has to issue a Dated Receipt of the written application for employment Guarantee Process :Allocation of Employment Step 7: Allocation of Employment • Employment within 15 days of work application or date from which employment is sought, which ever is later • If applicant does not report for work no unemployment allowance payable • Can reapply • Employment within 5 km radius of village. 10% of the wage rate as extra wages paid if distance more than 5 km • Intimation of work provided has to be sent in writing & through public notice at the Village Panchayat office Payment of Unemployment Allowance • If Employment is not provided within 15 days, daily unemployment allowance, in cash has to be paid. • States will pay the Unemployment Allowance at their own cost Planning of Works • Planning of works to allocate employment within guaranteed time • Works selected from the list of permissible works under Schedule I of the Act • Permissible works are as follows: -Water Conservation -Drought Proofing( including plantation and afforestation) -Flood Protection -Land Development -Minor Irrigation, horticulture and land development on the land of SC/ST/ -BPL/IAY and Land reform beneficiaries -Rural connectivity • 60:40 ratio of wages and materials to be maintained May be maintained at the district level. Planning Process Decentralised, Participatory Process. PRIs principal role • Gram Sabhas Initiate Planning process and recommend works • Gram Panchayat consolidate recommendations of Gram Sabha into Village Development Plans and forward to intermediate Panchayat level • Intermediate Panchayat: Programme Officer will consolidate Gram Panchayat Plans into Block Plans with addition of works that cut across gram panchayats for approval of Intermediate Panchayat • District Panchayat: District Programme Coordinator will consolidate Block Proposals and proposals received from other implementing agencies for inclusion in the shelf of projects to be approved by the District Panchayat Execution of Work Implementing Agencies • No fixed percentage allocation of works as in SGRY:50GP/30 –IP/20-ZP • At least 50 % of the works has to be allotted to Gram Panchayats • Other Implementing Agencies: -Other Panchayati Raj Institutions (PRIs) -Line departments (PWD, Forest Dept.) -NGOs -SHGs • Private contractors are banned Payment of Wages • Statutory minimum wage for agricultural labourers in the state, unless the Central Government “notifies” a minimum wage not less than Rs. 60/day • Wages paid weekly, or in any case not later than a fortnight • Only Cash Mandatory Worksite Facilities • • • • Drinking water Shade Medical aid Creche if more than five children below age 6 are present Note: These facilities are to be provided by the implementing agency Public Accountability • GS will conduct social audits of all works taken up within GP • All accounts and records relating to the Scheme are to be made available for public scrutiny and any person desirous of obtaining a copy of such records may be provided such copies on demand and after paying specified fee • A copy of muster rolls of each work has to be made available at Gram Panchayat & to Programme Officer [at the Block level] for inspection by any person interested after paying specified fee • DPCs, Pos and GPs to Prepare Annual Report EGS: Cost sharing • Central Government to pay for: – wage costs, – 75% of material costs, and – some administrative costs. • State governments to pay for: – 25% of material costs – other administrative costs, – unemployment allowance. Paradigm Shift: From SGRY to NREGA Issue Other Wage Employment Programmes(SGRY) NREGA Status Programme Statute Focus Infrastructure Employment generation Supply led. Works opened by implementing agencies & then labour is engaged Demand-based. Application by Wage seekers for employment and then works are opened Process Labour Any one can be engaged Only Job Cards holders that apply as labour for employment Time frames None Employment within 15 days of demand, Payment within 15 days of work Duration of Employment Dependent on duration of work by implementing agency Legal Guarantee of as many days of employment as a job card holder applies for, subject to maximum 100 days Issue Other Wage Employment Programmes(SGRY) NREGA Nature of works Any work 60:40 ratio of wages and material No 60:40 ratio of wage - Permissible works: material Financial Support -25% State share -75% Centre share -Fixed Allocation to State -Fixed share to each PRI tier: 20%-ZP 30%-IP 50%-GP -Demand Based. -No fixed allocation to State -No fixed allocation to PRI. Incentive structure in the release of Central share Central Funds are released on the basis of Demand for employment received in a district and the districts provision of guaranteed employment within 15 days. 90% assistance from Centre if employment is provided within 15 days of demand. If not, then State will pay unemployment allowance at its own cost. Thematic Discussion Roles, functions and responsibilities of key agencies Agencies with Critical Functions • Gram Sabha: • Panchayats: Principal agencies for planning and implementation • Gram Panchayat : basic unit of implementation. • In each Block, a Programme Officer is to coordinate the implementation of EGS • District Programme Coordinator at district level:Collector /CEO • State Employment Guarantee Council Functions related to Demand for Employment Functions DPC Building Awareness among community *** Receiving applications for registration Verifying applications for registration Issue of Job Card Receipt of employment application Issue of dated receipt ZP PO IP GP **** *** * *** * *** * *** * *** Functions related to Planning of Works Functions DPC ZP PO IP GP **** Recommending works(Village) *** * **** Forwarding Village Plan to Block Consolidating GP recommendations into Block Plan Gram Sabha **** Convening Gram Sabha for Planning works Consolidating Gram Sabha recommendations into Village Plan Other implementing agencies **** *** Functions related to Record, Report, Review, Redressal Functions DPC ZP PO Village Registers MPR Data consolidation computerisation, reporting Annual Report Quality monitoring &Control Social audit Grievance redressal IP GP Other Gram Implement Sabha ing agencies ** *** *** *** *** *** *** *** ** *** ** ** *** *** ** ** *** ** ** **** **** *** Functions related to Planning of Works Functions DPC ZP PO IP Recommending works(Inter GP) ** Approving Block Plan ** Forwarding Block Plan to District ** Including works proposals from other implementing agencies *** Consolidating IP recommendations into District Plan *** GP Other Gram implementing Sabha agencies Functions related to Planning& execution of Works Functions DPC Muster roll issue PO ** Wage Payment Job Card entries GP *** Other Gram implementi Sabha ng agencies **** *** Muster roll maintenance Measurement IP **** Approving District Plan Getting Technical estimates made for approved works ZP ** ** ** ** **** *** *** Functions related to Capacity development &Fund Management Functions State Govt DPC Training *** **** ***** **** *** Provision & release of State Share Release of funds to PO/IA Accounts Fund Release to implemen ting agencies/ Accounts Personnel Placement Fund manageme nt ZP PO IP GP Other imple menti ng agen cies Paymen ts/ Accoun ts Paym ents/ Acco unts Deployment and Training of Personnel Positioning key personnel • District Programme Coordinator( DPC ) • Programme Officer (P.O.) • A Gram Rozgar Sewak at the GP level (local, 12th pass) - Registration -Verification of registration applications - Issue of Job Cards - Receiving applications for employment - Issue of dated receipts for employment applications -Reporting Demand to the Programme Officer so that work may be allotted to the implementing agency - Informing the applicants to report for work - Ensuring payments are made on time to the workers. - Reporting work progress and all other matters to the Programme Officer on a regular weekly basis. Key Functional Areas for deployment of additional full time dedicated personnel Level Key Functional Areas Personnel to be deployed GP 1 Gram Rozgar Sewak for each GP Block Programme management 1 Programme Officer for each Block Works Technical assistants pooled to service GPs IT , MIS Computer Assistants Finance Accountant. Distt Works Manager, Technical assistants IT , MIS Manager, Computer Assistants Level Key Functional Areas Distt Finance Training Social Audit, Grievance redresssal Personnel to be deployed Accounts Manager with Accounts assistants Training Coordinator Coordinator All personnel to be: Full time & dedicated to NREGS Contract/Deputation No permanent posts Administrative expenses permissible under the 4% financial limit • • • • • • • • • Information Education Communication (IEC) Training MIS Quality supervision: This includes monitoring and verification (specially muster roll verification) evaluation, Social Audit. Quality Monitors at the State, District and Block levels. Setting up grievance redressal systems Engaging professional services Operational Expenses: Office expenses related to the implementation of NREGS Stationery related to computational processes/MIS. Additional Staffing dedicated to NREGS in key functional areas of the Scheme at the Gram Panchayat/Block/District levels Expenditure not permissible under the 4% administrative limit • Salaries/ remunerations/honoraria of functionaries already engaged by the Government/ PRIs / any other implementing agency. • Personnel, other than indicated by the Ministry. • Purchase of new vehicles and repair of old vehicles. • Civil works Administrative expenses apart from 4% limit • Expenditure on workers engaged to look after crèche on site/carry water - To be separately charged to unskilled wage cost -Not to be included as part of the work – measurement. • One time expenses: Separate from the 4% permissible limit. -Preparation of Perspective Plan - Printing of job cards, photography -Augmentation of computational facilities at the Block and district level. -Almirahs for record-keeping and functional furniture at GP, Block and District-levels Administrative expense as function of total expenditure • 4% administrative expense: a function of the total expenditure under NREGA resulting into creation of person days in a financial year • Need for a Management Plan to monitor total programme expenditure and outcomes to leverage appropriate management support to it GP Training Key Functionaries for their Roles and Responsibilities Block District GP members Panchayat Secy Gram Rozgar Sewak Mate IP members ZP members Programme Officer Line Depts Engineers Engineers Computer personnel Computer personnel Accounts personnel. Accounts personnel. Activities under Training • Training calendar to be drawn up: Training load/Time • Training modules to be calibrated in content and process according to different stakeholders • Training materials: - Act & National NREGA Guidelines in local language - Manuals/ Hand books with FAQs * on different components *for different target groups -Films • Osmosis Process for Training. -District Resource Group -Block Resource Group -Village resource group • Integrated Groups of different stake holders for core components( Programme Processes) • Separate Groups for specific skill sets(IT/Works/Accnts) Components of Training • Enabling Local Communities to know their Rights under the Act • Procedures for registration and issue of Job Card • Procedures for employment application • Procedures for Planning and Executing Works • Maintenance of Muster rolls • Norms of Measurement • Wage Payment • Update of Job Cards • Maintenance of Records, data, Reports • Maintenance of Accounts • Unemployment Allowance • Social Audit Impact Assessment of training • Concurrent assessment of the impact of the training programme to ensure that all key responsible agencies - Understand the provisions of the Act, - Their respective roles in it - Have the skills to implement it. • Reiterative Cycles of training using the feedback Social Mobilization Building Awareness and Involving Stakeholders Building Awareness:Information, Education and Communication ( IEC) Key Target Groups: • Local work force engaged in manual labour • Poor rural households • SC/ST/women/ minorities • Remote habitations Drawing up an IEC Plan Preparation of Communication material on NREGA processes in simple local language Information Dissemination An intensive One day orientation of all Sarpanches at the Block level A Gram Sabha in every village to acquaint local people with the key provisions of the Act. Participation of beneficiaries be ensured One day be fixed & publicised as Rozgar Diwas Use of multi media; • TV and radio where ever possible. • Print media –local vernacular newspapers. • Pamphlets and brochures in simple local language with Graphics. • Local cultural forms, like puppetry, folk theatre and music may be used at the village level Information Dissemination District personnel teams mobilised to camp and night halt in villages Information counters in the local Market days using audio-video material Village Information Wall NGOs to facilitate awareness generation Help Line - Telephone numbers of key officials publicized Important aspects of NREGA for Communication • • • • • • • • Guarantee of 100 days of employment upon Demand Application Process for registration and Job Card. Written application for demanding employment Dated receipt of the application for employment by the Gram Panchayat. Unskilled manual Work to be provided within 15 days of demand. If employment is not provided within fifteen days of application, unemployment allowance will be paid by the State Government Minimum wages for agricultural labour to be paid within 15 days of work completion Workers have the right to check their muster rolls. Feed back on IEC • Every Gram Panchayat must give a certificate that it has convened a Gram Sabha in each village and acquainted the local community with NREGA provisions • Concurrent assessment of the effectiveness of IEC activities must be done and any deficiencies that come to light, must be removed Outcome Indicators of effective IEC Local community aware of NREGA and its key processes: • How and where to apply for registration • Use of job card for demanding employment and recording entitlements, job card with photographs are free of cost. • After receipt of job card, local community has chosen to apply for employment according to its own choice of time & days • Dated receipt for application for employment is issued • Authentic Muster rolls Planning and Execution Perspective Plan • A 5 Year District Perspective Pan that must -be village based -Map Physical Resources available: -Map social infrastructure available -Identify Gaps -Identify works that can be taken up as per NREGA permissible list -Identify resources available for them under existing programmes -Identify works and resources proposed to be budgeted under NREGA -Assess labour demand -Estimate employment likely to be generated from these works Perspective Plan • Need to match: -What local people want & -What will build their livelihood base -Participation of local communities and PRIs & Professional expertise • Districts may engage professional agencies • Separate Guidelines for Perspective Plans will be issued • Separate funds for making Perspective Preparing a Shelf of Projects • The Perspective Plan will take some time to prepare. • In order to start work upon Demand, the District administration will ensure that each village has a shelf of projects. • NREGA is open to all households in a village. But experience has shown that mainly the poor households come for employment under NREGA. • Therefore, the number of works in a year in a village may be estimated by taking the village average of BPL families and deriving the total person days that will be generated by providing 100 days of employment to all these families. • Shelf of projects in a village must be adequate to meet twice the times of estimated demand for employment for a year Preparing a Shelf of Projects • Each village must have a shelf of projects of at least five works with technical and administrative approvals, ready to be drawn upon when demand for employment comes • The plot numbers of the sites where works are to be executed should be mentioned, so that each work has a unique location code. • The shelf of projects at the village level will comprise small projects that can be quickly executed within one working season • Priority will be given to works that can be executed by the Gram Panchayat. • Only such works that involve more than one GP may be taken up at the Intermediate Panchayat level. • Outcomes expected from the works should indicate : -Estimated benefits in terms of person days - Physical improvement envisaged ( land/water conservation etc) - Benefits to the community Executing Works • List of approved works to be displayed at the GP. • Technical estimates to be displayed at all worksites in simple local language. • Mate for managing works: from among the Job Card holders. • Progress report by Implementing Agency to local vigilance committee. • Pre-Mid-Post Project condition to be recorded • Asset register at GP with unique number to each work to prevent duplication Muster Rolls • Numbered Muster rolls will be issued for each sanctioned work by Programme Officer (this is a check on false muster rolls). • Muster rolls will be maintained on the work site by the executing agency. • Muster roll must mention Job Card numbers of workers (this is a check on false names and contractors). • Muster roll will mention: days worked, quantum of work done, amount paid • Muster rolls should be read out on the work site during measurement and wage payment to prevent bogus records • Entries of the muster roll must be correspondingly recorded in the job cards of the workers • If Line departments are identified as implementing agencies, they will have to be trained in undertaking labour intensive works and the maintenance of muster rolls for each work. Measurement and Payment of wages • Schedule of rural rates based on work time and motion studies for labour intensive works should be formulated for measurement of work out turn. • Regular measurement and supervision of works to be done by qualified technical personnel on time. • Measurement to be recorded in authenticated measurement books. • Measurement details should be read out to workers • Wages may be paid in cash. Wages must be paid in front of the community. • Wages may also be paid through Post/ Bank accounts of wage earners. • Wages paid must be entered in the Job Cards. Tracking number of days of employment • The number of days worked by all the members of a household whose names are on the job card person should have been entered on the muster rolls and the job card • The total number of days actually worked by all the members of the household and recorded in muster rolls and the household Job Card is counted as Person days • Do not divide total expenditure by wage rate to derive persondays • Total number of person days of a household cannot exceed 100 Key Document, Records and Reports Key Documents and Records • • • • • • • • • • Principal Documents: Application forms for registration Job Cards Application Form for employment Muster Rolls with unique number Key Registers Registration Issue of Job Cards Demand and provision of employment Assets Finance Complaints. Printed documents must be distributed to the GP, Block and District levels All printed documents under NREGA will have the words National Rural Employment Guarantee Scheme, on top, followed by the name of the state These documents are the basis of NREGA Data Base and Reports Their Formats are compatible with electronic processing Review & Reports Regular Review • Once a Fortnight on a fixed day at Block by PO with Gram Rozgar sewaks • Once a month on a fixed day at District by DPC with POs • Once a month on a fixed day at State with DPCs Collect and discuss information on NREGA. Problem solving Monthly Progress Reports: - Employment demanded and provided - Persondays - Financial status - Works Reports: on line MIS Management Information System Operationalising MIS • Priority to operationalising Web-based MIS www.nrega.nic.in to place all data in public domain Workers’ entitlements: Registration, job cards, muster rolls, Employment demanded and provided Work data: sanctioned shelf of works, work estimates, work in progress, measurement. Financial indicators: funds available/spent, amount paid as wages, materials and administrative expenses. • Data software engineered, for cross verification of records and report generation. • Data Analysis for consistency and Alerts for District/Stats • Computerisation of Blocks: .computers& connectivity cost is additional to 4% limit Personnel Training Computers Connectivity: Transparency Social Audit, Monitoring and Grievance Redressal Systems Transparency • Three Pronged -Proactive Disclosure -Information upon Payment (RTI) - -Social Audit • Proactive Disclosure All NREGA-related documents to be available for public scrutiny: *Key information in local language at GP level *Muster rolls to be read out & pro-actively displayed at Gram Panchayat Office. * Web-enabled MIS www.nrega.nic.in • Documents to be made avaialable to public on payment of prescribed fee. Social Audit • • • • • • • System where local Community scrutinises all records and procedures of a programme, verifies its authenticity and whether the expenditure incurred has delivered its objective . The Implementing agency is bound to provide all necessary documents Social audit is in addition to the CAG audit Should be both concurrent ( of live works) and Post completion Social Audit by Gram Sabha of all works in a Gram Panchayat GP to provide records PO and DPC to facilitate through resource support: planning, training, ensuring access to records, follow -up Steps for a Social audit Setting up a Village Resource Group for social audit at to facilitate it -Village monitoring and vigilance committee(5 members may be selected) 2) Training the resource group: Initial training should be atleast a week: thorough understanding of -Act -Guidelines -Social Audit Hand book and how to use it for collecting, verifying and recording information 3). Plan for social audit: To be drawn up by DPC Conduct social audit twice a year: corresponding to working seasons 1). Steps for a Social audit 4) Prior Intimation: GPs to be informed three months in advance by PO 5) Records to be made available atleast one month before to the village social audit team 6) Scrutiny of records: internal cross checking & external verification with persons/works 7) Public Hearing and evidence Reading out the findings of social audit on a specified day in the social audit forum Concerned Officials to attend from district administration: engineers/accountants 8) Record of proceedings 9) Follow up by District administration. Action taken to be reported in the next social audit forum Monitoring Output and Outcomes Function Activity IEC Output Sarpanches well aware of the Act Implementatio n in Conformity to legal processes Gram Sabha to Wage seekers acquaint local No of Gram Sabhas aware of their community held Rights and able with the Act to exercise them Block Level Convention for sensitising Sarpanches No of conventions held No of Sarpanches oriented Outcome Monitoring Mechanisms • Monitors for internal and external monitoring must be identified and trained at the State/ District and Block levels • 100% verification of works at the Block level, 10 % at the District and 2% at the State level has to be ensured. • Local vigilance and monitoring committees to be set up and trained • Data Analysis and timely remedial measures • Follow up on feed back Grievance redressal system • Complaints book at GP level • PO responsible for disposing complaints within 15 days • DPC must review on Monthly basis • Toll free Help Line Fund Management Fund Management • Dedicated NREGA accounts in a PSU Bank at district/Block/GP levels • DPC/PO and GP Secretary/Gram Rogar Sewak to be authorised to operate the account. • Demand Based release of Funds. No fixed allocation and installments • No allocations on a 50-30-20 pattern to GP-IP-ZP as in SGRY • Estimation of fund requirement by implementing agency based on demand for employment • Cash Flow Management: to maintain 15 day payment cycle • Funds released by Centre : -Initial installment on Labour Budget :Annual estimate of labour -Incremental installments on specific proposals of districts based on physical and financial progress - Financial claims to be moved when 60% of available funds used • Proposal must be signed by District Programme Coordinator Fund Management • Documents needed for release of next installment: – Proposal on prescribed form – UCs – Audit report for the last year(due on 30th September), in the original form – Bank reconciliation statement, in the original form. – Requirement of funds to be indicated in the covering letter. – Recommendations of State Government about specific amount required – MPRs on prescribed proforma should have been sent for all months in the year. – Non-diversion and non-embezzlement certificate. – Compliance report of any condition imposed earlier – Outcomes and output are mentioned in UC. – Conformity to NREGA Processes