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

• Worlds 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.

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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.

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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.

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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.

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Tools Used

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

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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.

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• Preliminary Findings

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Table 1 Demographic Profile of the Job Card
Holders
Sex Sex Caste Caste Caste Caste Education of the Respondents Education of the Respondents Education of the Respondents Education of the Respondents Education of the Respondents Average Land Holding
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
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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

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Table-2 Awareness about NREGA

Advance Notice for Meetings Advance Notice for Meetings Organization of Rojgar Diwas Organization of Rojgar Diwas Organization of Rojgar Diwas
Panchayat No Yes No 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
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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.

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Table-3Registration for Job Cards
Free and Easy Registration of Job Cards Free and Easy Registration of Job Cards Time gap between registration and issue of job cards Time gap between registration and issue of job cards Time gap between registration and issue of job cards Time gap between registration and issue of job cards Time gap between registration and issue of job cards Custodians of Job Cards Custodians of Job Cards Custodians of Job Cards Custodians of Job Cards
Panchayat No Yes Within a week Within two weeks Within three weeks Within a month More than a month Self Head of the Family Ward Member Sarpanch
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
Sinduragaura 0.0 100.0 30.0 20.0 10.0 30.0 10.0 44.4 22.2 22.2 0.0
Total 13.4 86.6 21.4 20.5 9.8 36.6 11.6 79.1 7.3 3.6 5.5
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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.

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Table 4 Application for Employment
Panchayat Applications Submitted Applications Submitted Average Time Gap between Application and Allotment of Works
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
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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.

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Table 5 Procedures for Execution of Works
Panchayat Provision of a list of Public Works Provision of a list of Public Works Provision of a list of Public Works Provision of Public Display Provision of Public Display Provision of Public Display Provision of Public Display Knowledge about works Knowledge about works Knowledge about works Knowledge about works Average Mandays
Panchayat N Y DK AL ST RL NV PD GPO ER FV Average Mandays
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 Dont Know AL Always ST
Sometimes RL Rarely NV Never PD Public
Display GPO Gram Panchayat Officials ER
Elected Representatives FV Fellow Villagers
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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.

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Table 6 Wage Payment
Panchayat Criteria of wage payment Criteria of wage payment Criteria of wage payment Average wages received Mode of Wage Payment Mode of Wage Payment Mode of Wage Payment Mode of Wage Payment Mode of Wage Payment Is muster roll read out? Is muster roll read out?
Panchayat Piece rate Daily wages   Average wages received Daily Weekly Fortnightly Monthly Irregularly No Yes
Panchayat Piece rate Daily wages Others Average wages received Daily Weekly Fortnightly Monthly 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
Mahispatta 0 90 10 49 0 100 0 0 0 37.5 62.5
Mohulia 100 0 0 126 0 20 50 30 0 80 20
Narsinghpur 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
Sinduragaura 90 10 0 93 0 70 0 0 30 90 10
Total 63.4 34.8 1.8 92.4 0.9 56.9 17.4 11.9 12.8 65.1 34.9
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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.

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Table 7 Provision for Grievance Redressal
PANCHAYAT Availability of Complaint Register Availability of Complaint Register Availability of Complaint Register Disposal of Complaints Disposal of Complaints Disposal of Complaints Availability of Help Line for Grievance Redressal Availability of Help Line for Grievance Redressal Availability of Help Line for Grievance Redressal
PANCHAYAT Availability of Complaint Register Availability of Complaint Register Availability of Complaint Register within a reasonable time within a reasonable time within a reasonable time Availability of Help Line for Grievance Redressal Availability of Help Line for Grievance Redressal Availability of Help Line for Grievance Redressal
PANCHAYAT No Yes Don't Know No Yes Don't Know No 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
Total 42.5 55.2 2.3 70 25.6 4.4 66.7 29 4.3
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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.

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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.

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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

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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.

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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.

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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

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