APPRAISAL OF IMPACT ASSESSMENT OF NREGS IN SELECTED DISTRICTS OF HIMACHAL PRADESH, PUNJAB, HARYANA.

Transcription

1 APPRAISAL OF IMPACT ASSESSMENT OF NREGS IN SELECTED DISTRICTS OF HIMACHAL PRADESH, PUNJAB, HARYANA. Districts: Hoshiarpur, Sirsa, Sirmaur PERIOD JULY-AUGUST 29 Sponsored By United Nations Development Programme (UNDP) India (India Centre for Research in Rural and Industrial Development, (CRRID) Sector 19-A, Madhya Marg, Chandigarh 1619)

2 TABLE OF CONTENTS Page No. Executive Summary 3-22 Chapter I: Background & Context of NREGA in the State Chapter II: District Selection Criteria & District Profile Chapter III: Sample Size & Research Methodology Chapter IV: Findings & Analysis Chapter V: Remedial Action, Recommendations & Future Interventions Annexure Worker Schedule Gram Panchayat Schedule Non-Worker / In-Direct Beneficiaries Schedule

3 Executive Summary Under the professional Institutional networking (PIN) of Ministry of Rural Development, United Nations Development Programme (UNDP) sanction Appraisal of impact assessment study, in the three districts namely Sirsa in Haryana, Sirmaur in Himachal Pradesh and Hoshiarpur in Punjab. NREGS was started in the first phase in these selected districts. Study has done according to the guidelines of UNDP and ministry of rural development. The summary of the findings are as under: Profile of the Districts: Sirmaur District Sirmaur is the southern end district of Himachal Pradesh. The district shares its boundary with district Shimla in the north; district Solan in the northwest, Panchkula and Yamuna Nagar districts of Haryana in the southwest and, Dehradun district of Uttaranchal and Saharanpur district of Uttar Pradesh in the east. Its longitudinal and latitudinal extend is from to East and from to North respectively. The district has an area of 2825 Sq. km. Which is only about 5 per cent of the area of the state? It ranks eighth in term of size in the 12 districts in the state. The altitude varies from about 45 meters to 3647 meters and the general slope of the area is from northwest to southeast. River Giri, a tributary of rive Yamuna, drains most of the water of district. River Tons, another tributary of river Yamuna, river Markanda and some other seasonal streams also contribute in draining the rainwater form the district. Whereas Churdhar range runs along its border with district Shimla in the north Shivalik range in the south forms its boundary with Haryana. River Tons and river Yamuna demarcate its eastern and southeastern boundary. River Giri divides the district into two distinct physiographic regions. The region to its north is called as Trans- Giri region and the one to its south of this river is as Cis- Giri region. The mountain ranges of Trans region have comparatively higher elevation than those of Cis- Giri regions. The Cis- Giri region also has an open valley or Kiar-Ka-doon between the Shivalik range and the Dharthi Dhar. The Western part of this open valley is drained by river Markanda and the eastern part, which is also called as by river Bata.

4 Sirsa Sirsa is one of the largest district of Haryana in term of its population and net area. District is agricultural developed and a food bowl of Haryana. Main crops grown in the district are wheat, paddy and Cotton. The name of the district derived from its headquarter Sirsa, it is said to be the oldest place of the North India. Presently district comprises four tehsil namely Sirsa, Dabwali, Rania and Ellanabad. It has 7 development blocks, 4 Towns, 325 Villages and 333 Gram Panchayats. Its total population according to 21 census is 11, 16,649 comprising of 5, 93,245 male and 5, 23,44 female. The sex ratio of district is 882. About 26 percent population lives in the urban area. Hoshiarpur The district Hoshiarpur is located in the north-eastern part of the state. It is situated in the Bist Doab (area between Beas and Satluj rivers) cultural geographic region of the state. The district is bounded by districts Kangra and Una, of Himachal Pradesh, in the northeast, district Gurdaspur in the northwest, districts Jalandhar and Kapurthala (interspersed) in the southwest, and district Nawan shahar in the south. The district extends from 3-51 north to 32-5 north latitude and east to east latitude. The district has an elongated shape with a slightly more width in the northern portion of the district, especially along an imaginary east-west line, slightly north of Hoshiarpur town, through the trifurcation point between the boundaries of Hoshiarpur, Gurdaspur and Kapurthala districts and Tanda town. From this line, the width of the district tapers towards south-east as well as towards the north. Objective of the study Objectives The objectives of this study are: To identify efficient management practices, procedures, processes, factors, for better performance and generation of positive impact of the scheme ; To suggest interventions and strategies for dissemination of those practices and factors that can help to check the shortcomings of this scheme; To help and lend support to the implementing agencies in evolving the design addressing implementation challenges more effectively.

5 To search strategically better approach for strengthening the capacity of selected district in implementing process. To built social capital formation through awareness generation, social mobilization and social audit. To study effectiveness of NREGS in employment generation. To study the effect of fiscal decentralization through NREGA. To study effectiveness of social auditing. However, main focus of the study is to search better strategically approaches for strengthening the capacity of each three district in implementation process and creation of positive impact on the rural development programmes. Methodology The study adopts following criterion for sample design in selection of blocks, gram Panchayats, works, workers and non workers. The sample consists of 6 blocks, in total, selecting two blocks from each of the selected three districts. Blocks were selected on the basis of performance indicators like, Job cards, persondays generation and utilization of funds.on the basis of these indicators one block is selected from the better performing blocks and the other from the poor performing blocks. 24 Gram Panchayats (GPs) in total 4GPs from each block 4 GPs were selected based on the performance indicators, like job cards, funds utilization, manages generated. Two Panchayats were selected from better performing Panchayats and another two from the poor performing Panchayats. Out of selected four Panchayats, three Panchayats were those where work was on going and one Panchayat where work was completed. From each gram Panchayat (GP), one work has been selected for survey. Therefore, 24 works, in total, has been studied. Out of these all 24 works, 18 were ongoing works and 6 were completed works. From each district 8 workers (1 per each Panchayat) and 4 nonworkers/gram sabha members (5 per each Panchayat) were interviewed. Workers from the categories of women and SC were given due representation in the entire sample.

6 In total 24 workers, (minimum 1 workers in each village) and. in addition to that 12 non workers (5 per village) were also interviewed. Panchayat members, community leaders, gram sabha members and government functionaries were also contacted to study the impact of the programme, problems faced during the implementation of the scheme and their suggestions, for improving the program Summary on main findings of Panchayat perception, worksite verification, workers and non workers assessment of NREGS is given as under: 1. Panchayats Perception Role of Gram Panchayats is becoming extremely crucial in planning and implementation of the rural development scheme. NREGA is a holistic scheme, which not only covers the construction related activities but also cover the livelihood and sustainability of natural resources at village level. In this context, Panchayats has to play a bigger role encompassing the activities related to infrastructure, human development and livelihood issues. Following is the findings on the Panchayats Perception. i) Training Panchayat members It was asked from the Panchayat members whether they got any training on NREGA, all of the elected Panchayats in districts of Sirsa and Sirmaur reported that they received training, whereas only one fifth of the Panchayats in Hoshiarpur district received training on NREGA. Extension of capacity building activity to various stakeholders In addition to elected members of Gram Panchayats and Gram sabha members, other stakeholder in the NREGA are Social Audit Committee member, Grievance Committee Members, Government Functionaries and Vigilance Committee Members, Training and awareness for them is equally important as these bodies, especially social audit committees are acting as a watchdog. Data collected show that all selected Panchayats in district Sirmaur, formed the social audit committee and in their GP s where as in Sirsa only one selected GP has formed a social audit committee and in Hoshiarpur only two selected Gram Panchayats has a functional social audit committee.

7 All the members of two SACs got training in District Hoshiarpur and in District Sirsa out of 6 members 5 got training whereas in District Sirmaur 7% percent of formed committee got training on NREGA. Grievance Committee Members In Hoshiarpur and Sirsa districts Grievance committee was not formed in any selected Gram Panchayats. Whereas 3 Panchayat in Sirmaur district has a grievance committee and only one Panchayat reported that training has been provided to grievance committee members. Government Functionaries Training to the government functionaries regarding all aspect of NREGA is equally important. Therefore it is enquired whether Panchayat secretaries and other village level functionaries received training. It has been found that Training of these functionaries was good in Himachal Pradesh and just average was in Punjab and Haryana.There is a need to provide rigorous training to all functionaries working at the Panchayati level. ii) Panchayati Awareness about Measurement Book (MB) It has been mentioned that Panchayats awareness with regard to measurement Book among Panchayat members is very good in Sirsa a compared to Hoshiarpur and Sirmaur District GPs iii) Mode of work Allocation The Mode of allocation of work to workers different in all the Districts. Whereas in District Sirsa of Haryana, all Panchayats gave consolidated work to worker, so that they can work accordingly to their own time. In Sirmaur all Panchayats giving Work on daily basis. In Hoshiarpur only one Panchayats gave consolidated work and remaining allocated work on daily basis iv) Impact of NREGA To assess the impact of NREGA programmes on wage earners, agriculture, irrigation, poverty, reduction, connectivity and also on the functioning of PRI s, views of Sarpanches and other members of Panchayats of the selected Gram Panchayats of all

8 the three Districts were sought. The main point which emerged from the input provided by them is as under: Wage Earner One of the main objectives of NREGA is to provide 1 days wage employment to the job card holders. Therefore it is important to know what impact this programme has made on wage earner. All the Panchayats reported that economic condition of the wage earners has improved and moreover the workers need not to go outside the village to seek work. Panchayati Raj Institution With regard to NREGA s impact on the functioning of PRI who is one of the major stake holders in NREGA programmes. All the Panchayats in District Sirmaur, 62.5 percent of in district Sirsa and almost same percentage in Hoshiarpur district reported that due to NREGA their workload has been increased very significantly because they have to maintain various records. Another positive finding is that Panchayats in district Sirmaur reported that due to NREGA people s faith in Panchayats has increased. Panchayats from the entire three districts also reported that flow of funds to Panchayat has also increased. One Panchayat each from Sirsa and Hoshiarpur reported that now decentralization is becoming a reality due to NREGA. Agriculture and Irrigation More than 62 percent of the selected Panchayats in Sirsa district and nearly three-fourth Panchayats in Sirmaur district reported that agricultural productivity has increased due to NREGA activities. But more than 87 percent Panchayats of District in Hoshiarpur reported that NREGA did not have any impact on agriculture and irrigation Connectivity Under NREGA many activities like construction of link roads, path ways etc. has been undertaken to improve the connectivity for the overall development of the rural areas, which also provide linkages with the markets. No doubt some Panchayats from district

9 Sirsa and Sirmaur did report that NREGA do not have any positive impact on the connectivity, all selected Panchayats of district Hoshiarpur and more than 62% of Sirsa and Sirmaur reported that due to NREGA there is over all development of the area due to construction of link road, pulia and bridges etc. Women With regard to the impact of NREGA on women folk, all the Panchayats in district Sirsa, more than 87% of Sirmaur and about three-fourths of district Hoshiarpur reported that women belonging to poor strata of the villages are getting jobs and their wages are same as of men, which otherwise are getting very less. Impact of NREGA on workers migration Migration has both negative and positive impact on migrant s lives. On the one hand it creates vast economic opportunities and there by help in removing the abject poverty, improving socio- economic condition of the migrant s family, on the other hand the worker has to face many difficulties at the work place intern of denial of basic facilities like sanitation, drinking water and proper housing. Therefore NREGA is a positive step to curb distress migration. Data gathered during survey show that there in no change in inmigration of the workers to their Panchayats area in district Sirmaur and Hoshiarpur where as 37 percent Panchayats in district Sirsa reported that in migration has decreased due to NREGA work at their native place. But on the other side there is a decrease in out migration from the villagers. All the Panchayats in District Sirmaur, three-fourth in Hoshiarpur and 5 percent in Sirsa reported that out migration from their village has decreased. v) Social audit committee One of the tools of good governance is social audit.in Panchayat act of all states Gram sabha been empowered to act as a watchdog. The main motto of social audit is to assist disadvantaged groups and encourage community participation for collective decision making. From the transparency and accountability point of view, social audit is more important. It was found that 62.5 % gram Panchayats of district Sirsa, 87.5 % of

10 Sirmaur and only about 25 % gram Panchayats in Hoshiarpur district formed the social audit committees. vi) People s awareness about RTI act It was enquired from Panchayats whether or not people in their Panchayat areas are aware about the RTI act. About half of the selected gram Panchayats of district Sirsa and Sirmaur and only 12.5 percent of district Hoshiarpur reported that people are aware about RTI act. It shows that awareness about RTI act is good in Sirmaur and Sirsa districts but poor in the district Hoshiarpur. vii) Problem in implementation of NREGA Main Problems stated by selected Panchayats in different Districts are as under: Sirsa Delay in receiving of funds (62.5 percent gram Panchayats) 6:4 ratios is not suitable (62.5 percent gram Panchayats) Lack of staff (5% gram Panchayat) Banks are far away and bank staff is not cooperative (5%) Supervision of work and lack of awareness (37.5%) Corruption (12.5%) Assessment of work delayed because one J.E in whole block (5%) Sirmaur Delay in receiving of funds (62.5%) 6:4 ratios is not suitable because of hilly terrain (62.5%) Lack of staff (5%) Banks are far away and staff is not cooperative (37.5%) Problems in material transportation (25%) Hoshiarpur Delay in receiving of funds (75%) Lack of staff (5%)

11 Assessment of work delayed because one J.E in whole block (62.5%) No funds to purchase working tool (37.5%) Lack of proper supervision (37.5%) Lack of awareness about guidelines of NREGA (5%) From the above the common problem emerges are: Lack of Proper trained staff. Delay in receiving funds. Lack of awareness on different aspect of NREGA guidelines and convergence with other department etc. 2. Worksite verification Out of 24 selected GPs of three districts, 18 Gram Panchayats were selected where works were on going stage. The Team visited all the worksites during working hours. At most of the time visits to worksites were unannounced. The Team held informal discussion with the labourers, mates and women in separate group or individual in order to get the first hand information on the implementation of NREGA activities. Workers were also educated by the team regarding the main features of NREGA, particularly about their rights to get 1 days employment in a year about which majority of the workers in all selected gram Panchayats were not aware about it. Besides inspecting the work site facilities, the team also made field observation and discussed the economic usefulness of the work created. After meeting the workers on worksites the team also visited the Panchayat offices and verified the records and the muster roles which most of the time were lying with the Panchayats or even not available for verification. The team also discussed the problems of workers with the elected members of Panchayats and requested them to rectify the problem faced by the workers on worksite. Selected ensured the team regarding implementation scheme in a better way. The district-wise findings of worksite verification is given as under. i) Muster Role

12 Availability of Muster role at the time of visit At the time of the visit by the team to various worksites in the three selected districts. It was found. In District Sirsa MR was not available at any of the worksites. The main reason for its absence from the worksites was that in District Sirsa MR is filled only after the completion of work. In district Sirmaur MR was available only with half of the Panchayats. The remaining half of the Panchayats reported that the MR is available in Government offices or with some other person locally. Updating of Muster role MR was found updated at 6% of worksite in Hoshiarpur district and only at one worksite in Sirmaur district, in Sirsa district since MR is Updated only after the completion of work, therefore, it was found incomplete at all the worksites ii) Actual Labour available at worksite at the time of visit At the time of the visit of the team to the various worksites in the three districts, more then 2 workers were found actually working at 4 worksites in district Sirsa and 1 worksite each in district Sirmaur and Hoshiarpur. Similarly between 15-2 labourers were found at one location in Sirsa district and at 4 worksites in district Sirmaur and at one worksite in Hoshiarpur Districts. iii) Irregularities in MR Irregularity was found at all the 6 Worksites of District Sirsa, as MR was not available at any of the worksites. These Irregularities happened due to the fact that in district Sirsa MR is updated only after the completion of work. In District Sirmaur, irregularities in MR were found at 8 Percent of work sites verified. In district Hoshiarpur, an irregularity in MR was found in half of the verified works iv) Facilities available at work site Shades for period of rest were not available at any work site of selected GP s of all the three districts.

13 Drinking water facility was available at all the work site of District Sirsa and available at more than 83 % worksite of District Hoshiarpur and only at one worksite of District Sirmaur. First aid kit was available at half worksites of district Sirsa, and only one site of district Hoshiarpur and none of selected worksites of district Sirmaur has first aid kit facility at the worksites. Child care facility was not available at any of the worksites of three Districts. v) Vigilance committee formed The vigilance committee was formed in district Sirmaur at half the GPs and only at one GP in district Sirsa. In district Hoshiarpur not a single verified GP verified has a vigilance committee, beside the vigilance committees formed were active only in district Sirmaur. vi) Contractor s involvement As per NAREGA guidelines involvement of contractors in the execution of work is not permitted. In violation of these guidelines, involvements of contractors were noticed at two worksites in District Sirsa and at one worksite in Hoshiarpur district. vii) Use of Labour displacing machine Like the involvement of contractors, use of labour displacing machines is also not permitted in NREGA works. Despite that machines were used in the execution of works at one worksite each in district Sirsa and district Hoshiarpur. viii) Mate got training Training to mate was not provided at any of the worksites in district of Sirsa and Sirmaur but in district Hoshiarpur three days training was provided to one of the mates working at one worksite. ix) Mate having equipment Out of six mate in district Sirsa 5 were having basic equipments, that is measuring tape and measuring pole, needed for work measurement. Three of them were also having

14 electronic calculators to facilitate accurate calculation of works. One mate however has a measurement sheet to record the measurement of works. x) Economic useful of assets being created, maintained or repaired as per investigator The investigators who conducted the survey also assessed the usefulness of created assets at various worksites in three districts. As per their assessment in Sirmaur and Hoshiarpur district, assets created at 5 out of 6 worksites in each district were rated either very useful or quite good. In district Sirsa assets created at 3 out of 6 worksites were rated either very good or quite good. The assets created at the remaining worksites in the three districts were rated either not particularly useful or useless 3. Detail of workers and their Perceptions about NREGA One of the main objectives of NREGS is to provide 1 days wage employment to the members of household who have got the job card. Therefore workers are the major stakeholders in the process of implementation of NREGS. Keeping the fact in mind an effort was made to know the socio economic background, age sex, educational level, and occupation etc of the workers selected for the interview. Attempt was made to know about the problem they faced in submitting their application for seeking work, getting job card and opening of bank account, irregularities if any in getting wages or unemployment allowance, and status of facilities provided at worksite etc. this information was collected through a well structured questionnaire. For this purpose 24 workers, 8 from each district were interviewed. These findings are as discussed below i) Process of Getting Job Card: Getting job card is one of the main tasks in NREGS because employment is to be provided on the basis of it. It was enquired from the workers whether they had applied to the GP for registration in written or orally. More than three-fourth respondents in all selected GPs applied for registration in writing. In district Sirmaur more than 88 percent selected workers told that they had submitted written application for issuing of job card ii) Information Source: Source of information regarding NREGS was also enquired, and it was found that more than 98 percent cases responded that one of main

15 source was their gram Panchayats. It was gram Panchayats particularly Sarpanch/Pradhan, who told the wage earner to get, register for job cards Media Radio: Though much information is provided through Radio, on NREGS but it was only a source for few workers Media TV: Though worker admitted that they have no time to watch the TV, still more than 27 percent of total selected worker in all the three district and 45 percent of Hoshiarpur district reported TV as a source of awareness on NREGS. Media News Papers: Newspapers have minimum impact on the workers awareness, because majority of the workers were illiterate and newspaper is also not available to them. Government Functionaries: Govt. functionaries were not playing very much role in creating awareness among the working class. iii) Expenses on Job Card: More than 38 percent of total worker selected in all three districts reported that they did expenses on job card particularly on the photo to be pasted on job card. In district Hoshiarpur more than 57 percent selected worker reported some expenses incurred on job card. iv) Photo of Beneficiary on Job Card: During the survey, efforts were also made to check whether or not the job cards of the beneficiaries carried their photograph. It was found that while job cards of 87 percent carried their photographs, about 5 percent of the job cards were without any photograph. The status of the remaining job cards (more then 8 percent) is not clear as they were not shown to the investigators, although most of the owners of such cards clamed that their job cards do carry their photograph. Although issue of job cards without photograph is a irregularities as such card can be misused. But these are seldom misused because everybody in the village is personally known to the members of Gram Panchayat. v) Mode of Application submitted for employment: As per NREGA Guidelines Gram Panchayats or Block programme office shall provide unskilled manual work to the applicant within fifteen days of receipt of application preferably with in a radius of 5 kms of the village where the applicant resides. The request for work may be oral or in written form. More than 6 percent of the workers reported that they asked for work in writing,

16 while others just asked verbally. In Hoshiarpur more than half of the workers asked for work only in verbal form while about 22 percent of the workers in Sirmaur district made verbal request. This shows that employment providing agencies, whether it is Panchayat or Block office, are not insisting for written application and thus following the NREGA guidelines in this respect in letter and spirit. vi) Panchayat Issued dated Receipt of Written Application: As per NREGA guidelines, Panchayats are supposed to issue a dated receipt to the applicants on receiving the written or verbal application for employment. But it has been reported that in most cases no receipt is issued. Panchayats generally avoid giving receipt of application work. Out of the total 145 selected workers written application received in the three districts, receipt were issued to only 77 or about half of the applicants. The compliance with the NREGA rules in this respect was comparatively more in Sirmaur district where out of 62 applicants receipt was issued to 44 (7%). By contrast, in Sirsa district out of 44 applicants, receipt was issued only to 14 (32%). vii) Time Period taken for Wage Disbursement: Under this scheme it is ensured that the workers get payment for the work done by them within a short span of time. Our enquiry reveled that about 69 percent of total workers got their wages within a fortnight. Infect 1 percent of the total workers got their wages within one week. The remaining workers were paid within one month. Inter district variations especially in the time taken for making payments to workers especially if it is divided into just two time periods that is within fortnight and after fortnight, are not very significant. This shows that workers are getting their wages without much delay. viii) Expenses Incurred at the time of Opening of Bank Account: More than 65 percent of total workers reported that they spend some money at the time of opening of bank account. District-wise analysis of data shows that 73 percent workers in Hoshiarpur incurred expenses. Main item of expenses is on photographs which were pasted on job card. ix) Mode of Payment: More than 87 percent of the workers were getting wages through Bank and about 8 percent through Post Office. Only about 5 percent of workers got their wages through other mode. Payment through other modes is relatively more popular in Hoshiarpur district.

17 x) Satisfaction from work Measurement: Nearly 77 percent of the total workers were satisfied from the work measurement, which they were to do in a day. About 38 percent workers of district Sirmaur and more than 27 percent of Sirsa were not satisfied with the work measurement. xi) Regular Mate: Nearly 43 percent of the total workers reported that there is no regular mate. This problem is more acute in district Sirmaur where more then 62 percent of the workers reported the non availability of regular mate. xii) Impact on Income of the Workers: In this survey impact of NREGA on the income of workers was also assessed. About 59 percent of the total workers reported considerable increase in their income due to NREGA. Infect more then 82 percent of the workers from district Sirsa reported considerable increase in their income. Only about 16 percent of the workers reported no increase in their income. These workers were from Sirmaur and Hoshiarpur district. xiii) Children attending School: It has been reported that children of nearly 62 percent of the workers are attending school. In district Sirmaur children of more than 76 percent of workers were attending the school. xiv) Impact on Expenditure on Food Item: More than 77 percent of workers reported that their expenditure on food item has increased. In fact 97.5 percent of workers of district Sirsa reported increased expenditure on food items. About one-third of the selected workers of district Sirmaur reported that food expenditure remains the same. xv) Impact on Non-food Item: It has been reported by more then 65 percent of the workers that their expenditure on Non-food item has also increased. Only about onethird of the reported that expenditure remains the same and NREGA has no impact. xvi) Persondays completed: Each worker was asked how many days; he worked on NREGA project in a year. The average persondays was in the district Hoshiarpur in the year The average persondays in district Sirmaur and Sirsa was 3.4 in the years 28-9

18 xvii) Benefits according to workers: Workers were asked to state the benefits from the NREGS. Following were the main benefits reported by the workers. Improvement in socio economic living condition of the workers. Land improvements and Soil conservation activities helping agricultural activities. Increase in irrigation facility & Agriculture Production. Employment generation with in the village. Sure Payment against workdays. Women are getting job at their door step. xviii) Workers reported the following problems in relations to their work experience: Guaranteed 1 days are less Delay in payments of wages. Wages are less & work is more. Work allotment is more. Lack of Basic Facilities at work site. Lack of awareness about of 1 days guarantee of wage employment. Wages are less as compared to market rate. 4. Non- Workers Assessment One of the most important objectives of NREGA is to create durable assets for the benefits of all residents living in the areas. The works on soil and water conservation give fillip to not only conservation of water and soils but also to raise agricultural productivity. The works on digging of ponds not only increase the water holding capacity of ponds but also provide opportunity to start fishing activities in these ponds. Similarly works on rural connectivity open many opportunities for the people to start livelihood activities on a commercial basis. Due to all these reason, it becomes necessary to study the overall impact of NREGA not only on workers but also on the community as a whole. Attempts were therefore made to seek the views of workers as well as non-worker on the success and problems of NREGA implementation. For this purpose, 12 non-worker or residents of the village Panchayat were interviewed and their views about impact of NREGA on the lives of people have been sought. The findings of the survey are provided below.

19 i) Awareness about NREGA More than 97 percent respondents of district Sirsa, 9 percent of district Sirmaur and 95 percent of district Hoshiarpur were aware about NREGA. The main sources of awareness were: Panchayats, Radio, Television and Newspapers. The government functionaries has little role in the districts of Sirsa and Sirmaur, where as more than 28 percent respondents of district Hoshiarpur reported that government functionaries particularly Panchayat secretaries were also providing information regarding NREGA to the people ii) Impact of NREGA according to Non-Worker Views of the respondent with regard to the impact of NREGA on wage earners, women, poverty, Panchayats agriculture, irrigation and connectivity were sought. Wage Earner Non-worker feels that due to start of NREGA economic condition of the wage earners has improved a lot and moreover they are getting job on their door step. All the respondents of Hoshiarpur district and more than 97 percent of district Sirsa and 8 percent of Sirmaur reported that conditions of workers has improve as compared to their position earlier. Women: Eighty percent respondents of district Sirsa and more than 57 percent of Hoshiarpur reported that economic conditions of women improved and women are getting job at their door step. In district Sirmaur, not much impact on women was reported by respondent, because only few women worked in NREGA. Panchayats: More than half of the respondents in district Sirmaur, about 87 percent in district Sirsa and 7 percent respondents of district Hoshiarpur reported that workload of Panchayat has increased. About one-third respondent of district Sirmaur and Hoshiarpur reported that due to NREGA, Panchayats participation in development activities has increased a lot. In district Sirsa, 8 percent respondent viewed that people s faith in Panchayat has increased. Eighty percent respondents in district Sirsa, one-fourth in Sirmaur, and 6 percent respondents in district Hoshiarpur reported that Fund flow to

20 Panchayat has been regular and increased. Few respondents also reported that Panchayats are now generating the employment. Poverty: Majority of the respondents in the three selected districts viewed that poverty has declined among the workers. Few respondents however also reported that it has little impact on poverty, because workers are not getting 1 days employment as envisaged in the act. Agriculture: NREGA impact on agriculture is of every one s interest, therefore it is asked from the respondents that whether NREGA has any impact on increase in agriculture productivity and improvement in irrigation facilities. Data shows that more than 62 percent respondents of district Hoshiarpur reported no impact, about one-fifth of the respondents of district Sirsa and 55 percent of district Sirmaur reported increase in agriculture production. Connectivity: As many of the NREGA works were done for improving the connectivity of the villages, therefore perception of the common people regard to the usefulness of this works was worth. Sixty percent respondents in districts of Sirsa and Sirmaur and 8 percent in Hoshiarpur district viewed that there is an overall development of the area due to construction of pulia, bridge and paths under NREGA. Environment and Sanitation: More than 77 percent respondents of district Sirmaur, 8 percent of Sirsa and 6 percent of district Hoshiarpur reported no impact of NREGA on Environment and Sanitation. Horticulture Some works for the development of horticulture was also undertaken by the NREGA implementing agencies in the three districts under convergence with other departments. Therefore reaction of respondents with regards to the impact of NREGA on promotion of horticulture was also taken. Majority of the respondents reported no change or negligible impact on horticulture. In actual practice, there is no convergence with horticulture and other departments, which is expected from NREGA implementing agencies. ii) Benefits to Marginal and Small Farmers: NREGA activities must benefit marginal and small farmers, as they form the major chunk of population living in rural

21 areas and with no other alternative for their livelihood. Respondents were asked whether or not land development activities benefited marginal and small farmers. There is a mix response to this query, Fifty five percent respondents in district Sirsa, more than 42 percent in Sirmaur and 45 percent in district Hoshiarpur reported that marginal and small forms are getting benefits from the NREGA activities. iii) Involvement in Work Selection: As NREGA works are to be approved by gram sabha with the involvement of common people, therefore respondents were asked whether or not they were involved in the selection of works. Data shows that 7 percent respondent in district Sirsa, 65 percent each in Sirmaur and Hoshiarpur district reported their non-involvement in work selection. It shows that people s involvement in plan preparation and work selection is very limited. Thus there is a need to create awareness among common people about their rights and responsibilities so that their involvement in NREGA works can be enhanced iv) Problems in implementation of NREGS: According to the Respondents following are the main problems in the implementation of NREGS. Less awareness among people Proper work selection is not done with people s participation and transparent manner Irregularity in the funds reaching to GP Number of job card issued is less then number of people, but more people are willing to work (especially in Hoshiarpur district) No work assessment by third party and Lack of transparency and accountability v) Awareness about RTI: RTI is one of the major tool for enhancing the transparency and accountability. Awareness about it must reach to the common people to achieve its objectives. Data shows that majority of the respondent in all the selected GPs of three districts were not aware about it. 5. Remedial Action, Recommendations & Future Interventions During the course of survey, various stakeholders were contacted and interviewed on the implementation of the NREGS. Their views on the problems, confronted by the

22 Panchayats, workers, non-workers, and government functionaries were taken and suggestions to improve the functioning of the programmes were also sought. This chapter discusses the remedial action, recommendations and future interventions, required for the better implementation of the programme. These are listed below according to the stakeholders. i) Gram Panchayats Panchayats being the main implementing agency of NREGA programme their views about NREGA are very important for the research team. The team therefore interacted with twenty-four gram Panchayats in the three selected districts. They have suggested the following remedial actions. Training Though training was provided to the elected Panchayat members and also to some other Gram sabha members. Yet there are still some stakeholders like social audit committee member, grievance committee members, vigilance monitoring committee members, Gram sabha members, government functionaries like Panchayats secretaries, Sahayaks and Gram rozgar sewak who need to be provided proper training about NREGA scheme. Training programmes are to be organized at appropriate level i.e. District, block and even at Panchayats level. Training content Selected Panchayats suggested following training content: Convergence of works NREGA Act, guidelines Technical support in plan preparation Social Auditing and RTI Act Involvement of other departments Panchayats suggested that other departments like agriculture, irrigation, horticulture, forest, P.W.D education and health should also be involved in NREGA implementation so that proper convergence with their schemes can be done.

23 Other suggestions are: Role of Panchayats smitis and Zila parishads in NREGA implementation can be enhanced by delegation certain powers and responsibilities to them. There is a need for involvement of common people in the preparation of annual plan so that real needs of the people are addressed. Panchayat need technical support from some agency for making projects, which can be funded through NREGS. Need for making committees like SAC, vigilance and monitoring committees more functional. Flow of Funds to GPs should be regular, and not at the fag end of the year for the timely utilization of funds. Need for more trained staff, particularly technical staff. Involvement of Contractor and use of machinery should be completely stopped. Mate should be appointed from within the workers with rotation and he should be provided all the requisite equipments like measuring tape, measuring poles, measuring sheets, calculators etc. Assets created under NREGS should be maintained. Panchayats should be educated about various activities which can be covered under NREGS. ii) Suggestions by the workers: Workers should be made aware about the guarantee of wage employment and in case of failure, the provision of unemployment allowances Facilities at worksite should be provided. Daily wages should be enhanced as per market rate. Provide regular and more than 1 days work Mate should be trained for measurement Wages should be given Daily or Weekly Work Measurement by J.E. should be on time. Regular staff for NREGA should be provided. Wages should be increased. Muster roll sheet should be at work site. Awareness camp should be organized at village level.

24 iii) Wages should be increased. Workers should be involved in work selection. Assessment by Non workers Continuous work should be provided to the workers Awareness camps on NREGA should be organized at GP level Work assessment and monitoring should be done by outside agency Strengthening of Social Audit System Wages should be paid in time to the workers Available funds should be displaced on board and Need more transparency and accountability. Recommendations In view of above suggestions put forward by various stake holders, following recommendations are suggested: To ensure people participation in NREGA programmes, selection of works should be done through Gram Sabha Meetings. Sufficient staff should be recruited and trained for NREGS. Flow of funds should be made regular i.e. Panchayats should get money in each quarter. Monitoring and evaluation of the work particularity during the on-going stage. Each district should provide facilities at worksite as per norms of NREGA. For the proper convergence of NREGS with the scheme of other departments, the involvement of concerned departments with the NREGA programmes must be ensured.

25 Chapter- I Background & Context of NREGA in the States The Ministry of Rural Development, Government of India, initiated a holistic and integrated development scheme, viz. National Rural Employment Guarantee Scheme, which came into force during February 25, in 2 backward districts of India. During 27, the scheme was extended to another 13 districts and since April 28, this scheme covers all other districts of India. This is the largest employment programme ever started in the country with a huge public investment. The focus of the scheme is to provide 1 days wage employment to rural households who wish to work and ask for work. Panchayats are involved in the planning and implementation of the scheme and creation of durable assets for sustainable development of the rural areas. There is a complete ban on the involvement of contractors and use of machinery is prohibited. The guidelines on NREGA clearly reflect the importance of social audit and greater emphasis has been placed on transparency and accountability. Use of information technology through online information is encouraged for the stakeholders for proper monitoring and evaluation of the programme. The NREGS document envisaged that focus of the scheme shall be on the following works in their order of priority: (i) water conservation and water harvesting; (ii) drought proofing (including afforestation and tree plantation); (iii) irrigation canals including micro and minor irrigation works; (iv) provision of irrigation facility to land owned by households belonging to the scheduled castes and scheduled tribes or to land of beneficiaries of land reforms or that of the beneficiaries under the Indira Awas Yojana; (v) renovation of traditional water bodies, including desilting of tanks; (vi) land development; (vii) flood control and protection works, including drainage in water logged areas; (viii) rural connectivity to provide all-weather access; and (ix) any other work, which may be notified by the central government in consultation with the state government. The scheme has been universalized for all persons living in rural areas instead of being available only for the families below poverty line. The central government provides 9 per cent share of funds for the scheme. It also compensates various states if fund crunch affects employment generation. Various social security measures provided under the scheme are : (i) If any injury occurs to any persons employed under the scheme, he

26 or she shall be entitled to free of charge medical treatment; (ii) If a person employed under the scheme dies or become permanently disabled by accident arising out of and in course of employment, he shall be paid by the implementing agency an ex gratis payment at the rate of rupees twenty-five thousand; and (iii) facilities of safe drinking water, shade for children and periods of rest, first-aid box with adequate material for emergency treatment for minor injuries and other health hazards connected with the work being performed shall be provided at the work site. Salient Features of the Act a) Adult members of a rural household, willing to do unskilled manual work, may apply for registration in writing or orally to the local Gram Panchayat. b) The Gram Panchayat after due verification will issue a Job Card will bear the photograph of all adult members of the household willing to work under NREGA and it is free of cost. c) The Job Card should be issued within 15 days of application. d) A Job Card holder may submit a written application for employment to Gram Panchayat, stating the time and duration for which work is sought. The minimum days of employment have to be at least fourteen. e) The Gram Panchayat will issue a dated receipt of the written application for employment, against which the guarantee of providing employment within 15 days operates. f) Employment will be given within 15 days of application for work, if it is not then daily unemployment allowance as per the Act, has to be paid. Liability of payment of unemployment allowance is of the States. g) Work should ordinarily be provided within 5 km radius of the village. In case work is provided beyond 5 km, extra wages of 1% are payable to meet additional transportation and living expenses. Taken from the National Rural employment guarantee act 25, operational guideline 28

27 h) Wages are to be paid according to the Minimum Wages Act 1948 for agricultural Labourers in the State, unless the Centre notifies a wage rate which will not be less than Rs. 6/ per day. Equal wages will be provided to both men and women. i) Wages are to be paid according to piece rate or daily rate. Disbursement of wages has to be done on weekly basis and not beyond a fortnight in any case. j) At least one-third beneficiaries shall be women who have registered and requested work under the scheme. k) Work site facilities such as crèche, drinking water, shade have to be provided. l) The shelf of projects for a village will be recommended by the gram sabha and approved by the zilla Panchayat. m) At least 5% of works will be allotted to Gram Panchayats for execution. n) A 6:4 wage and material ratio has to be maintained/no contractors and machinery is allowed. o) The Central Government bears the 1 percent wage cost of unskilled manual labour and 75 percent of the material cost including the wages of skilled and semi skilled workers. p) Social Audit has to be done by the Gram Sabha. q) Grievance redressal mechanisms have to be put in place for ensuring a responsive implementation process. r) All accounts and records relating to the Scheme should be available for public scrutiny. Paradigm Shift from Wage Employment Programmes: NREGA marks a paradigm shift all precedent wage employment programmes. The significant aspects of this paradigm shift are captured below: a) NREGA provides a statutory guarantee of wage employment. b) It provided a rights-based framework for wage employment. Employment is dependent upon the worker exercising the choice to apply for registration, obtain a Job Card, and seek employment for the time and duration that the worker wants. c) There is a 15 days time limit for fulfilling the legal guarantee of providing employment.

28 d) The legal mandate of providing employment in a time bound manner is underpinned by the provision of Unemployment Allowance. e) The Act is designed to offer an incentive structure to the State for providing employment as ninety percent of the cost for employment provided is borne by the Centre. There is a concomitant disincentive for not providing employment as the States then bear the double indemnity of unemployment and the cost of unemployment allowance. f) Unlike the earlier wage employment programmes that were allocation based. NREGA is demand driven. Resource transfer under NREGA is based on the demand for employment and this provides another critical incentive to States to leverage that Act to meet the employment needs of the poor. g) NREGA has extensive inbuilt transparency safeguards. (i) Documents: Job Cards recording entitlements (in the custody of workers) written application for employment, Muster Rolls, Measurement Books and Asset Registers. (ii) Processes: Acceptance of employment application, issue of dated receipts, time bound work allocation and wage payment, Citizen Information Boards at worksites, Vigilance Monitoring Committees, regular block, district and state level inspections and social audits. h) The public delivery system has been made accountable, as it envisages an Annual report on the outcomes of NREGA to be presented by the Central Government to the Parliament and to the Legislature by the State Government. Specifically personnel responsible for implementing the Act have been made legally responsible for delivering the guarantee under the Act. (i) There has been quite a sharp increase both in the number of total persondays generated as well as per household, under this scheme. In many states, a sharp improvement from the first year to the second year, in terms of employment generated, can be quite observed. In the light of above guidelines and salient features of NREGA, the scheme has been in the state of Haryana, Punjab and Himachal Pradesh. The state wise brief profile is given as under.