Appraisal of procedures and processes of NREGA in Orissa

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

2. 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.

3. 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?

4. 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.

5. 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.

6. 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.

7. Tools Used Four different sets of questionnaires: • (i) Job Card Holder Questionnaire • (ii) Non-Job Card Holder Questionnaire • (iii) Sarpanch Questionnaire • (iv) Investigator Questionnaire

8. 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.

9. Preliminary Findings

10. Table 1: Demographic Profile of the Job Card Holders

11. 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%

12. Table-2: Awareness about NREGA

13. 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.

14. Table-3:Registration for Job Cards

15. 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.

16. Table 4: Application for Employment

17. 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.

18. Table 5: Procedures for Execution of Works 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

19. 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.

20. Table 6: Wage Payment

21. 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.

23. Table 7: Provision for Grievance Redressal

24. 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.

25. 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.

26. 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

27. 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.

28. 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.

29. 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

30. THANK YOU