Directorate of Economics and Statistics, J&K Planning and Development Department

Transcription

1 Government of Jammu & Kashmir Evaluation Report On Mahatma Gandhi National Rural Employment Guarantee Scheme(MGNREGA) (Jammu, Pulwama & Leh Districts) ( to ) Impact of MGNREGA scheme in sample villages as per Knowledgeable Persons perspective Water Conservation ensured Soil Erosion Stopped Afforest ration Took Place Land Development Took place Improved Irrigation Improved Village Connectivity 19% 28% 30% 41% 72% 70% 0% 10% 20% 30% 40% 50% 60% 70% 80% Percentage of Sample Knowlegeable Persons reporting Directorate of Economics and Statistics, J&K Planning and Development Department

2 Highlights of the study 1) The information on the availability of funds under MGNREGA in the sample districts amply suggests that the scheme was progressing well year after year. The aggregate availability of funds registered phenomenal increase of 414% during the reference period from to The overall expenditure in the sample districts was of the magnitude of Rs lacs against the total availability of Rs lacs during the reference period from to at the utilization rate of 94% of the available funds. 2) The registration of Job Card Holders was on the rise during the reference period completely in consonance with the expenditure profile of the programme. The Job cards issued from to registered an increase of 24% and 23% over previous years respectively. The number of applications seeking employment under the programme were also on the rise showing 53% increase in and 300% in over the previous years. 3) The Job days claimed provided to the unemployed job seekers from to were also progressing considerably registering an increase of 33% and 213% over previous years respectively. 4) In the sample districts, the quantum of works executed under MGNREGA revealed almost identical prioritization of works over the three reference years of the study. The rural connectivity was priority first in the execution of MGNREGA works claiming 36% of the total works executed during and and 33% during ) During the reference period the participation of women workers under the scheme in the sample blocks had remained nominal at the rate of 11%. Only person days out of total of 4.90 lac were availed by women workers in the sample bocks. 6) The field enquiry results indicated that all the sample beneficiaries but 9 had been provided Job Cards by the Rural Development Department within 15 days of their submission of application. The Job Cards were issued to the beneficiaries strictly as per the norms of the scheme. 7) At an average, every Job Card Holder household had availed only 34 days against 100 days available for them. This simply means that only 34% benefit of the scheme was derived in the enquired villages both in terms of wages and assets creation.

3 8) While interacting with the beneficiaries, their Job Cards were also scrutinized with reference to Job days offered and wages received. It was given to know that adjustments were made regarding person days offered and payments made in the Job Cards taking the Job Card holders into confidence. These adjustments were inevitable otherwise offering of labour under MGNREGA at current wage rate was not possible. 9) 1913 beneficiaries constituting 98% of the enquired beneficiaries stated to have been provided wage employment within 15 days of application for work. 10) No unemployment allowance was paid in favour of the beneficiaries who were not provided employment within the time limit of 15 days which had become due to them as per scheme norms. 11) In the surveyed villages, 1076 beneficiaries constituting 55% of the enquired number stated to have received wages within a week/fortnight. The remaining 45% reported otherwise and majority of them had reportedly received wages after days the work was done. This evidently is clear violation of norms and needs immediate attention of the Implementing Department. 12) Regarding worksite facilities the ground level realities reflected that these provisions of the Act/Scheme were mostly confined to papers only. Not a single Creche was provided during in any of the worksites in the sample villages inspite of the fact that maximum women participation was reported in Chuchot block of Leh district. 13) The medical aid facility which is the need of every worksite was reported provided by only 1% beneficiaries. The facility of shed was reported provided by just 4% of the enquired beneficiaries. 14) The enquired beneficiaries expressed satisfaction over their engagement in MGNREGA, registration process, transparency and ensured payments. However, the satisfaction on worksite facilities and timely payments was observed low. The payments were also not provided within week/fortnight in sizeable number of cases which had amply been reflected in the low satisfaction level of beneficiaries on this very parameter. The Implementing Department must evolve all possible measures to ensure that the weak implementing aspects of the scheme are corrected by appropriate action on ground. It would, among other things, require intensive supervision and monitoring of the programme plus effective coordination with other involved agencies, particularly the financial institutions.

4 15) The enquiry of beneficiaries on the problems and bottlenecks suggested that only one problem was universal in nature i.e.the low rate of wages as compared to prevalent market rate. In spite of 100 Job days available for every registered household, only 14% had applied for the maximum number of 100 days. The reason behind this situation was evidently the low rate of wages as compared to market rate. 16) While offering suggestions for effecting further improvements in the programme, the enhancement in the wage rate was universally put forth. The suggestion of enhancing the wage rate at least to the neighbourhood of prevalent market rate could boost the programme implementation at a very large scale. 17) In the surveyed 51 villages across the sample blocks there were 1233 nonbeneficiary households who did not offered labour during inspite of Jobs in offering under MGNREGA. From the job seekers point of view the main reason for not offering labour under the programme was the low rate of wages as compared to prevalent market rate in the open market. 18) A minute analysis of data collected from the 51 surveyed villages revealed that the registered Job Card holders would have claimed lakh person days as a matter of right from MGNREGA but they actually availed only lakh person days during which was deficient by 79% of the total entitlements. The scheme being demand driven, it could be concluded that maximum utilization of entitlement of 100 person days by the registered households would have claimed 79% more investment of MGNREGA funds in the sample area. 19) In the normal lean periods the wage rate during was approximately in the range of Rs.200/- to Rs.250/- in rural areas and Rs.250/- to Rs.300/- in the urban areas. In the busy agricultural season the rates were higher by almost 20%. In such a situation, the Implementing Department could do a very little in enhancing the utilization of full entitlements of registered households who find best comparative advantage for working in the open labour market. However, the scheme could prove comparatively successful in remote and inaccessible areas of the state where employment opportunities are scarce. 20) The satisfaction level of Knowledgeable Persons on different aspects of the execution programme were mostly positive. The quality of works executed under MGNREGA was regarded satisfactory by 94% of the enquired Knowledgeable Persons. The satisfaction over scope of executed works,

5 material used, durability, functionality was also 90% or close to it. This implies that moderately good quality works were being executed under the programme. 21) Regarding benefits accruing to the rural areas, 70% Knowledgeable Persons reported that village connectivity improved and 72% stated improvement in the irrigation facilities of the villages. The Land Development having taken place was reported by 41% Knowledgeable Persons and afforestration by 30%. 22) Among the verified works 86% were complete and 14% were incomplete. So far as specifications were concerned, 85% were coinciding with the official documents and 15% were deficient as reported by the evaluation teams. 23) The quality of construction was put on a scale and only 37% were rated good and 57% of average quality. 6% of the total verified works were declared below standard. This situation again warrants that the labour material ratio under MGNREGA must undergo a realistic revision in view of huge price escalation in material costs. Further the supervisory system of the scheme must be strengthened to pave way for creation of durable and quality assets for ultimate well being of the rural poor.

6 Contents Chapter No Description of Chapter Page No s I Introduction 1 5 II Financial/Physical Progress 6 14 III Sample Block level Profile IV Field Findings & suggestions V Summary of Main Findings Annexure A List of beneficiaries provided 46 onwards delayed jobs \

7 Chapter - I Introduction: The Mahatma Gandhi National Rural Employment Guarantee Scheme (MGNREGS) envisages to guarantee at least 100 days of employment in a financial year to any rural household whose adult members are willing to do unskilled manual work. The scheme was introduced in the country from 2005 and in the J&K State its implementation started from in districts of Poonch, Doda and Kupwara. The scheme was subsequently extended to all districts of the state from 1 st of April The objective of the scheme is to enhance livelihood security in rural areas by providing at least 100 days of guaranteed wage employment in a financial year to every household whose adult members volunteer to do unskilled manual labour. TYPES OF WORKS PERMISSIBLE UNDER THE SCHEME: As per the guidelines of National Rural Employment Scheme (NREGA), the focus shall be on following works:- a) Water conservation and water harvesting works; b) Drought proofing including afforestration and tree plantation; c) Irrigation canals including micro and minor irrigation works; d) Provision of irrigation facility to land owned by households belonging to the SC/ST or to land of the beneficiaries of land reforms or to the beneficiaries under Indira Awas Yojana; e) Renovation of traditional water bodies including desilting of tanks; f) Land development; g) Flood control and protection works including drainage in waterlogged areas; h) Rural connectivity to provide all weather access. The construction of roads may include culverts where necessary, and within the village area may be taken up along with drains; i) Any other work that may be notified by the central Government in consultation with the state government. IMPLEMENTING AGENCY: The scheme is implemented by the Assistant Commissioner Development (Project Officer, Wage Employment) as District Programme Coordinator at the district level and by the Block Development Officers as the programme officers at the block level. Salient Features: 1) Adult members of a rural household, willing to do unskilled manual labour, may apply for registration in writing or orally to the local Gram Panchayat.

8 2) The Gram Panchayat after due verification will issue a Job Card. The Job Card will bear the photograph of all the adult members of the household willing to work under the scheme and is free of cost. 3) The Job Card is to be issued within 15 days of application. 4) The Job Card holder may submit a written application for employment to the Gram Panchayat, stating the time and duration for which work is sought. The minimum days of employment have to be at least fourteen. 5) Employment will be given within 15 days of application for work, otherwise daily employment allowance has to be paid as per the Act governing the scheme. 6) Work should ordinarily be provided within 5 Kms otherwise extra wages of 10% are payable to meet additional transportation and living expenses. 7) Wages are due 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.60/- per day. Equal wages would be provided to both men and women. 8) The Centre has initially notified the wage rate of Rs70/- per day and was revised a couple of times and at present it stood at Rs 131/- per day. 9) Unlike the earlier Wage Employment Programmes that were allocation based, MGNREGS is demand driven. Resources transfer under the scheme is based on the demand for employment. 10) Disbursement of wages has to be done on weekly basis and not beyond a fortnight in any case. 11) At least one-third of beneficiaries have to be women who have registered and requested for work under the scheme. 12) Permissible works predominantly include water and soil conservation, afforestration and land development works. 13) At least 50% of works will be allotted to Gram Panchayat for execution. 14) A 60:40 wage and material ratio has to be maintained. No Contractor and Machinery is allowed. 15) The Central Govt bears the 100% wage cost of unskilled manual labour and 75% of the material cost including the wages of skilled and semi-skilled workers. 16) Grievances redressal mechanisms have to be put in place for ensuring a responsive implementation process. 17) All accounts and records relating to the scheme should be available for public scrutiny. Need for Evaluation: The objective of MGNREGS is the creation of durable assets and strengthening the livelihood resource base of the rural poor. Investments made under MGNREGS are expected to generate employment and purchasing power, raise economic productivity, promote women s

9 participation in the work force, strengthen the rural infrastructure through the creation of durable assets, reduce distress migration and contribute to the generation of natural resources. Thus, outlays under MGNREGS have to be transformed into outcomes. Regular evaluations of the programme are required to be conducted to assess the outcomes. The State Level Evaluation Committee (SLEC) in its 5 th meeting held at Jammu on 25 th of November 2011 inter alia, identified MGNREGS for evaluation during in three districts, one each in Jammu, Kashmir and Ladakh regions. The job was entrusted to the Directorate of Economics and Statistics. The study was, accordingly, accomplished as per the following phases/strategies:- Objectives of the Study:- The objectives of the study were:- 1) To assess the utilization of resources made available under the scheme with bottlenecks, if any; 2) To assess the physical progress made under the scheme in creating durable assets and the final outcomes of the work done in terms of benefits accruing to the community; 3) To ascertain the quantum of person days generated with the feminine participation; 4) To assess transparency in registration, Job Card issuance, Work allotment, Payment of Wages, Un-employment Allowance etc; 5) To assess the impacts of the scheme on the socio-economic welfare of the MGNREGS workers/beneficiaries on the basis of their statements; 6) To ascertain the deviations, if any, witnessed/reported by the workers from the set guidelines of MGNREGS and satisfaction level of beneficiaries on various facets of the scheme; 7) To ascertain problems/bottlenecks being faced in the implementation, reasons therefor and measures to address them successfully. Reference Period: The reference period of the study was to However, under field operations works executed during and workers who offered services during were covered. Workers/Job Card holders registered but not applying for work during were also interviewed to ascertain reasons of their non-participation. The works executed during the period were assessed on various parameters i.e. scope, specifications, quality, durability, functionality, maintenance, community basis etc. in order to focus on the tangible outcomes of the programme. Sample Size and Selection Procedure: As per the aspirations of the SLEC, only three districts were covered under the study, one representing each region of the state. Within the selected district, one block with moderate achievements under the scheme was selected on purposive basis to avoid over estimation/under-estimation of results. For this study, Pulwama, Leh and Jammu districts were selected by simple random sampling procedure. In the selected block, 20% of total villages were selected. In the selected villages, all the works executed during

10 were put to evaluation audit with reference to different efficiency parameters. The Job Card Holders who offered services during were interviewed and their Job Cards audited with regard to person days offered, wages received etc. The Job Card Holders of the village who did not avail work/engagement under the scheme during the said year also came under evaluation exercise to ascertain the specific reasons for not providing/availing wage employment. 5 Knowledgeable Persons in each selected village were also interviewed to ascertain their viewpoint on the functioning of the scheme with special reference to creation of utility assets and generation of employment opportunities for rural poor. Field Operations: The collection of information from the selected districts as per devised formats was done by the concerned District Statistics and Evaluation Officers (DSEOs). On the basis of collected information, sample was drawn as per the stipulated sampling procedure. The field operations were conducted by the DSEO Offices and for that purpose the Statistical Staff placed in the Block Development Offices of the districts was also utilized on need basis for ensuring timely completion of the assignment. Supervision: The Regional Joint Directors in their respective districts carried-out intensive supervision of the field operations. They prepared observatory/ supervisory notes on the functioning of the scheme in the sample area which subsequently were furnished to the Directorate of Economics and Statistics. These notes were used as an authentic source of information for drafting the final report on the study. The Director, Economics and Statistics, J&K along with Regional Joint Director Kashmir supervised over the field operations in Leh district. Scrutiny and Tabulation: Scrutiny of schedules was done by a committee of experts constituted by DSEOs of the concerned districts under the supervision of Assistant Directors (E&S). In case discrepancies were noticed, rectifications were made and in some cases of Pulwama district reference back to the field was also done for authentication of data. The data was then displayed on muster sheets and then condensed as per the requirements of tabulation plan which was devised by the Directorate of Economics and Statistics and provided in advance to the concerned DSEO offices. Report Writing: The report on the Study was authored at the Directorate level keeping intact the sample district level information. The report confined itself to the satisfaction of postulated objectives alone.

11 Analytical Tools: All appropriate Statistical and Mathematical tools and techniques had been applied in analyzing data in order to make phenomenon easy to understand and to enhance the presentation of the report. These included percentages, averages, ratios, bar charts, pie-diagrams, trend curves etc. Instruments of Investigation: For obtaining official data from the Implementing Department, seven formats were devised. For conducting field operations, four different schedules; Beneficiary Schedule, Non-beneficiary Schedule, Knowledgeable Person Schedule and Physical Verification Schedule were devised. All formats and schedules devised and used for accomplishing the study are annexed with the report for facilitating future studies on the subject.

12 Chapter - II District Profile: The Mahatma Gandhi National Rural Employment Guarantee Scheme (MGNREGS) is undoubtedly the largest employment programme in human history and is unlike any other wage employment programme in its scale, thrust, people centered, demand driven, rights based, self selecting etc. It is implemented as a centrally sponsored scheme on a cost sharing basis between the centre and states as determined by the Act governing the scheme. The basic input of the scheme is the financial allocations earmarked for it and, of course, the efforts of the Implementing Department and the cooperation of all other stakeholders. The Evaluation Process is the input and output analysis of the scheme and naturally before analyzing the outputs in terms of realization of set objectives, the assessment of inputs has to be made. The instant evaluation study of MGNREGA had been confined to three districts viz; Pulwama, Jammu and Leh representing each region of the state. The reference period stands restricted to the years to The following table provides information on the financial inputs earmarked for the programme and utilization profile of the Implementing Department:- Table No 1 District Level availability and expenditure S. no District Year Year Year Total Availability Exp Availabilit y Exp Availability Exp Availability Exp %age (1) (2) (3) (4) (5) (6) (7) (8) (9) (10) (11) 1. Jammu % 2. Pulwama % 3. Leh % Total % %age - 95% - 90% - 95% - 94% The MGNREGA is a demand driven wage employment programme. Release of central share of funds are based on the projection of labour demand in the agreed-to Labour Budget (LB) between Central Govt and State Govt. The central releases are, thus, based on district/state specific anticipated labour demand proposals rather than on pre-determined budget allocations. Central share of funds under MGNREGA are normally released in two tranches. While

13 97.96 % % % % Amount of the release of 1 st tranche of central share is based on proportionate fund requirement as per the agreed-to Labour Budget to take care of requirement for the first six months of the financial year subject to a maximum of 50% of the total fund required for a whole year, the release of 2 nd tranche is based on (i) Un-spent balances and (ii) actual performance against the agreed-to Labour Budget during the year. The information on the availability of funds under MGNREGA depicted in table No-1 above amply suggests that the scheme in the sample districts was progressing well. In the year , the aggregate availability of funds was Rs lacs which rose to Rs lacs for the year registering an increase of 97% over the previous year. Again during the year the aggregate availability was of the magnitude of Rs lacs showing an increase of 161% over the fund availability of The utilization profile of the funds was also satisfactory which was 95% of the available funds during and dropped down to 90% in the subsequent year and attained 95% level during the year The overall expenditure in the three sample districts was of the magnitude of Rs lacs against the total availability of Rs lacs during the reference period from to at the utilization rate of 94% of the availability. At district level, the highest utilization of 98% of the available funds was reported in district Jammu followed by 95% in Leh and 84% in respect of district Pulwama. Given the fact that the utilization of funds was satisfactory, conceeding very little unspent balances for the subsequent years, the increase in the availability of funds was evidently the result of an increase in the demand for work under MGNREGA. The district level information in respect of all the three districts reflects an identical situation of huge increase in the availability as a result of proportionate increase in the demand for work under the programme. Utilisation profile of funds under MGNREGA in sample district during the period from Availability Exp %age Exp Jammu Pulwama Leh. Total

14 Registration of Key Stakeholders: The single most important and distinguishing feature of MGNREGA from other employment programmes of the past is the provision of work on demand by wage-seekers and work provided as their legal right. Most of the previous employment programmes ensured jobs when Governments decided to provide work, not when people demand work. On the contrary, MGNREGA is a demand driven public wage employment programme where works are under-taken and jobs offered whenever there is a demand for work by the registered job seekers. Thus the implementation of MGNREGA involves the pivotal role of wage seekers as the primary stakeholders of the programme. Their exercise of rights, process of registration, issuance of job cards, demand for work are the main triggers of key processes. In the three sample districts, the achievements made during the reference period in respect of these basic parameters are reflected hereunder:- Table No 2 Achievements of Registration of Job Seekers under MGNREGA S.no District Description of Item Year of reference Period %age increase over previous year (1) (2) (3) (4) (5) (6) (7) (8) No of Job Cards issued % 32% 1. Jammu No of applications for Jobs received % 472% No of Person days provided % 271% Women days provided % 547% 2. Pulwama 3. Leh No of Job Cards issued % 16% No of applications for Jobs received % 10% No of Person days provided % 94% Women days provided % -62% No of Job Cards issued % 10% No of applications for Jobs received % 237% No of Person days provided % 253% Women days provided % 382% Total No of Job Cards issued % 23% No of applications for Jobs received % 300% No of Person days provided % 213% Women days provided % 458% Before analyzing the official information as obtained from the concerned Implementing agencies of the Rural Development Department, it needs special mention here that the maintenance of database in respect of MGNREGA was observed very weak. The data was contradictory and not consistent within itself with the result the Evaluation Agency faced a lot of

15 inconvenience in obtaining precise information. However, all possible efforts were made to get rectified & un-contradictory data from the concerned Agencies, even then un-preciseness of certain data can t be ruled-out. The Govt Departments implementing various developmental and Social Security Schemes have over the years become very reluctant in sharing information with the Evaluation Agency, perhaps fearing out-cry on under implementation and mis-implementation of schemes as a result of evaluation auditing. The system needs to be set right and the evaluation exercise under taken by the Directorate of Economics and Statistics or any other agency must be taken in the right perspective for enhancing the implementation efficiency of the programme, the stressed objectives of the evaluation. The data demonstrated in Table No-2 reflected that the achievements on registration of job card holders was on the rise during the reference period completely in consonance with the expenditure profile of the programme. Upto the year , there were Job Cards issued in the sample districts which reached to in and further to in registering an increase of 24% and 23% over previous years respectively. The number of applications seeking employment under the programme were also on an increasing trend showing 53% increase in and 300% in over the previous years. In response, the Rural Development Department reported to had provided Job days to the unemployed job seekers of the magnitude of 8.56 lacs person days during the year which touched lac days in and lacs days in registering an increase of 33% and 213% over previous years respectively. These facts and figures suggested that the programme was popularizing in the state year after year. However, the participation of women workers was very limited having almost no scoring relation with the overall job days generated under the programme. The low participation of women workers in MGNREGA programme had mainly social and religious reasons in the state. The sample district level data reflected in the table shows identical movement suggesting that the issuance of Job Cards, receipt of applications for jobs and number of person days provided were on the upward move in all the sample districts. The fluctuations could be seen only in respect of work days availed by women workers, though there exists level playing field both for men and women in obtaining employment under MGNREGA. District Level Workdone Profile: The second most important goal of the MGNREGA is to provide livelihood security for the poor through creation of durable assets, improved water security, social conservation and higher land productivity. The

16 S. no emphasis of the programme is on integrated National Resource Management rather than on relief works approach. The programme requires an appropriate system to accurately record demand for work by wage-seekers. But before recording demand, it needs to make a prior assessment of the quantum of work likely to be demanded and also to ascertain the timing of such demand. Concomitantly, a shelf of projects is to be prepared and prioritized to meet this demand. This matching of demand and supply of work is the process of planning under MGNREGA and this is to be achieved through the preparation of Labour Budget (LB). The LB thus covers two aspects viz; assessment of quantum & timing of demand for work and preparation of a shelf of projects to meet demand for works. A shelf of projects consists of those projects that have been given administrative and technical sanctions and could be opened-up immediately upon receipt of demand for employment. The process of planning and identification of projects must start in a participatory manner at the habitation level, reflecting the needs and aspirations of the people. The MGNREGA stresses the need for convergence with other schemes, such as Integrated Watershed Management Programme(IWMP), Rashtiya Krishi Vikas Yojana(RKVY), Command Area Development (CAD), Horticulture Mission(NHM) etc. in order to attain sustained livelihood. In May 2012, the Central Govt has notified additional list of works permissible under MGNREGA and has provided greater clarity on the precise works that could be taken-up under the permissible category of works. In the sample districts, the works programme undertaken during the reference period is provided below:- Nature of works Table No- 3 Works Programme undertaken in Sample districts Jammu District Pulwama District Leh District Total (1) (2) (3) (4) (5) (6) (7) (8) (9) (10) (11) (12) (13) (14) 1. Water Conservation/Harvesting 2. Afforest ration and Tree Planting 3. Works under Irrigation Rural Connectivity Soil Conservation/Soil erosion 6. Land Leveling/development 7. Flood Control Others

17 Total In the sample districts, the quantum of works executed under MGNREGA was 1746 in which rose to 3104 in and further to 6573 in Thus there was increase of 78% during and 112% in over the previous years against 88% and 175% increase in the utilization of funds during the same period. All the three sample districts were seen on the path of progress in the execution of works. In Jammu district, 1263 works were completed in which increased to 1848 in the subsequent year and further to 4384 in the year indicating an increase of 46% and 137% over previous years respectively. In district Pulwama, the quantum of works executed during was 371 which increased to 1058 in the year and further to 1562 in the year District Leh also managed execution of 112works in which increased to 198 in the subsequent year and further to 627 in the year All these facts and figures revealed that the ambit of the schemes was increasing year after year. Prioritization of Works: The MGNREGA provides for permissible works in different sectors which naturally coincide with the set objectives of the programme i.e. generation of employment and livelihood security for the poor through creation of durable assets, improved water security, soil conservation and higher land productivity. The programme also provides a negative list of works which are not permissible under it due to their peculiar nature of not being helpful in the generation of employment and sustaining the natural economy. Works which are not tangible, measurable and verifiable in nature are also included in the negative list of MGNREGA works as stand-alone activities except when they are part of tasks in projects for strengthening the livelihood source base of rural poor. While undertaking works under the programme, the order of priority is to be determined locally and there are completely no restrictions whatsoever. In the sample districts the sector-wise execution of works is detailed below for analysis:-

18 Table No 4 Sectorwise works executed in sample districts Sectorwise works executed/completed S.no Total Works executed %age to Total (1) (2) (3) (4) (5) (6) (7) (8) 1. Water % 10% 9% conservation/harvesting 2. Afforest ration/tree Planting % 5% 3. Works under Irrigation % 25% 22% 4. Rural Connectivity % 36% 33% 5. Soil Conservation/Soil Erosion % 4% 4% 6. Land Leveling/Development % 7% 7% 7. Flood Control % 16% 19% 8. Others % 1% 1% Total % 100% 100% The sample districts which represent proportionately all the three regions of the state would naturally demonstrate the state level accurate situation. The aggregate sample data revealed almost an identical prioritization of works over the three reference years of the study. An overview of column 6, 7 and 8 reflected that the order of prioritization was similar in all the three years under review. The Rural Connectivity was priority first in the execution of MGNREGA works claiming 36% of the total works executed during and and 33% during The connectivity of rural areas within and to the nearby villages would definitely have two way effect and impact on the progress by easing-out access to the markets over and above other social, economic and educational benefits. The 2 nd most prioritized sector under the programme was the irrigation sector under which 510 works were executed in which increased to 770 in and to 1416 in Among the permissible sectors it occupied rank 2 nd in all the three years claiming 29% of total works in , 25% in and 22% in This activity is basically related to the agricultural sector aiming at bringing more lands under irrigation and facilitating intensified irrigation facilities for raising the production and productivity levels in the agricultural sector. This activity also had its favourable impact on the cropping pattern inducing farming community to shift towards highly productive and profitable crops. Flood control works had also been taken-up on a large scale in J&K. Floods not only damage agricultural crops but poses threat to the agricultural lands, property and

19 even to human and livestock life as well. The works executed under this activity were 263 in which increased to 494 in the subsequent year and stood at 1279 in In the over-all works programme it claimed 15% works in the first year of the reference period, 16% in the 2 nd year and 19% in the year The other sectors under which works were takenup under the programme included Land Leveling/development, Water Conservation/Harvesting, Soil Conservation/Soil erosion. The afforestration and tree planting had received the least concern in the first two years of the reference period but during a tangible quantum of 320 works were executed across the sample districts registering 5% coverage in the over-all works programme for

20 Chapter - III Sample Block Level Profile: As per the directions of the State Level Evaluation Committee (SLEC) the study was to be confined to limited geographical areas. Accordingly, in the selected districts one block with moderate coverage under the programme was selected to avoid over-estimation or under estimation of results. As the programme is demand driven, the allocations at the block level are naturally determined by the demand for work. This demand is determined by various factors which include un-employed labour force, poverty, lean agricultural season, remoteness etc. During the reference period, the funds made available to the sample blocks and the utilization made there against are reflected in the following table:- S. no District Sample Block Table No- 5 Availability of funds & Utilization at sample block level ( Unit - Rs in lacs) Year Year Year Total Availa bility Utilized Availa bility Utilize d Availa bility Utilize d Availabil ity Utilize d %age utilization (1) (2) (3) (4) (5) (6) (7) (8) (9) (10) (11) (12) 1. Jammu Bishnah % 2. Pulwama Pulwama % 3. Leh Chuchot % Total % %age - 98% - 97% 100% - 99% As already stated the allocation of funds under MGNREGA is wholly and solely guided by the demand for work. The availability of funds increases with the increase in demand for work. The sample block level data reflected above amply brings this fact to the fore that the availability of funds was on the rise year after year in all the sample blocks except in case of block Chuchot Leh where availability had decreased during as against previous year. But in the subsequent year the availability again showed huge increase by 363%. The aggregate utilization of funds at the sample block level was in the neighbourhood of cent percent suggesting that there were no hurdles in the implementation process of the scheme. During the reference period an amount of Rs lacs were utilized in the three sample blocks against the availability of Rs lacs registering utilization of 99% funds. Bishnah block of

21 Jammu and Chuchat block of Leh registered 99% utilization and Pulwama block managed 100% utilization of available funds during the reference period. The efficient fund utilization capacity of a programme is regarded as a positive indicator expected to help in the realization of the objectives set for the programme. But such programmes are equally vulnerable to mis-appropriations, duplications, over-lappings also, if not implemented under proper checks and balances. The programmes are required to be implemented under strict vigil by the supervisory and monitoring authorities to avoid indiscriminate implementation without any regard to the rules, regulations and norms governing it. Registration at Sample Block Level: The provision of work on demand by wage-seekers and work provided as their legal right is the distinguishing feature of MGNREGA. Thus generating awareness among potential Job-Seekers, setting-up of appropriate system that facilitates registration, issuance of Job Cards, application of demand for work etc are the primary responsibilities of the Implementing Department. The implementation of the scheme itself starts with the registration and issuance of Job Cards to the wage-seekers. The process is continuous. There might be some households who did not seek registration earlier due to any reasons. There would be another category of households who would like additional names to be entered on account of having become adults. To ensure that all the Job-Seekers are provided Job Cards, a door to door survey is envisaged under the programme to be undertaken by each Gram Panchayat. This survey needs to be conducted at that time of the year when people have not migrated to other areas in search of employment or other reasons. By every possible means the programme aims at bringing all the desirous Job- Seekers within its fold with special focus on vulnerable sections of the society including the women. In the sample blocks selected under the instant evaluation study, the following table provides facts and figures on the registration process and issuance of Job Cards:- Table No- 6 Job Card Holders as on & Job Seekers S. no Name of Sample Block Number of Job Card Holders Prior to Year of Registration No of Job-Seekers Men Women Total (1) (2) (3) (4) (5) (6) (7) (8) (9) (10) 1. Bishnah Pulwama

22 3. Chuchot Total %age - 45% 27% 13% 15% 79% 21% 100% The sample block level data presented above shows that the registration process under MGNREGA was a running process. Given the fact that there are no hurdles, whatsoever, in registering and obtaining Job Cards, the maximum registration had taken place prior to the reference period i.e. before However, during the reference period also bulk of Job Cards were issued across the sample blocks which reflects popularity of the scheme among Job-Seekers. In aggregate there were Job Card holders as on in the three sample blocks. Prior to , the Job Cards issued were of the magnitude of 7159 which constituted 45% of the total Job Cards. 27% were issued during the year , 13% in and the remaining 15% were issued in the subsequent year The number of Job Seekers was across the sample blocks which included 4529 women workers constituting 21% of the total strength of Job Seekers. The maximum number of women Job Seekers was from block Chuchot Leh which was of the magnitude of 3356 against 2568 male workers. Thus in the sample block of Leh district the number of Job Seekers under MGNREGA was at the ratio of 57:43 in favour of women workers. In the sample blocks of Jammu and Pulwama, the ratio was in favour of males as only 11% in Jammu and 4% in Pulwama were women workers among the registered Job Seekers. Applications for Employment in Sample Blocks: Once the Job Card is issued to a household, every member of the registered household whose name appears in the Job Card is entitled to apply for unskilled manual work. The application for work must be atleast for 14 days of continuous work. There is, however, no upper limit on the number of days of employment for which a registered person may apply, or on the number of days of employment actually provided to him/her subject to a maximum of 100 days per household in a given financial year. When a Job Card holder applies for work, employment has to be given to him within 15 days of application. The worksite must be within a radius of 5 Kms, otherwise a travel and subsistence allowance of 10% of the minimum wages have to be paid in addition to entitled wages. The programme provides many more rights to the workers which include entitlement to notified wage rate, equal rate for men and women, payment within week/fortnight, payment of wages through Post- Office/bank etc. If workers are not provided employment within 15 days of applying, unemployment allowance is provided. The applications for work may be on plain paper or it may be on a printed proforma which must state the registration number of the Job Card,

23 the date from which employment required and the number of days of employment required. In the sample blocks, the applications for work received during and the quantum of mandays provided is detailed in the following table:- S. no Name of Sample Block Table No- 7 Job Card Holders applying for work during Job Card Holders Total Applying for Work Number of Person days provided during Men Women Total Total Wages provided during ( Rs.in lacs) (1) (2) (3) (4) (5) (6) (7) (8) 1. Bishnah Pulwama Chuchot Total %age - 70% 89% 11% 100% - In the sample blocks, 70% Job Card Holders as stood on had applied for employment under MGNREGA during In response the Implementing Department had provided 4.90 lakh person days of which person days were availed by women workers at the ratio of 11%. The lowest women participation was in block Pulwama of the magnitude of just 1% and in Bishnah block it was 8%. In Chuchot block of Leh district, the women participation had outnumbered males by claiming 56% participation in the MGREGA works during The minute analysis of the data reflects that at an average 44 person days were availed by households applying for work during The average household earning were of the magnitude of study i.e Rs.5356 in the sample blocks during the year under Works Taken-Up in Sample Blocks: With the implementation of MGNREGA huge money in the form of wages gets pumped in the rural economy which boosts economic activities all around. The increase in the effective demand due to wage earning paves way for enhancement in economic activities which favourably affects each and every sector of the economy. Due to implementation of MGNREGA in the sample blocks a huge sum of Rs lacs was set in circulation during in the form of liquid wages alone which naturally would pave way for solid socio-economic development of the concerned areas. The creation of durable assets aimed at providing livelihood security for the rural poor is the 2 nd most significant feature of the programme. The schemes which are admissible under it need to be labour intensive and securing the

24 rural livelihood. Those works which does not commensurate with the basic outcomes of MGNREGA have been specifically disallowed. Even those works which are not tangible, measurable and verifiable are not permissible as stand-alone activities except when they are part of tasks in projects for strengthening the livelihood resource base of rural poor. In the selected sample blocks, the works undertaken and the resultant outcomes in terms of mandays generated, assets created etc. are provided in the following table for analysis:- Table No- 8 Works taken-up in sample blocks during S. no Name of Sample Block Number of Panchayat s taken-up Number of villages taken-up Number of works executed Total Cost of Works ( Rs. in lacs ) Wages Material Total Number of Person days generated (1) (2) (3) (4) (5) (6) (7) (8) (9) 1. Bishnah Pulwama Chuchot Total %age % 44% 100% - In the three sample blocks, the number of Panchayats was 103 and those of villages was 225. During the reference year , the works executed were of the magnitude of 1203 at an average of 5.34 works per village. An amount of Rs lacs was utilized on the execution of these works which constituted 56% of wage component and 44% of material component. As per the programme stipulations, the ratio of wage costs to material costs should not be less than the minimum norm of 60:40. The expenditure incurred on tools and implements is to be booked under the material component. The Act governing the MGNREGA scheme directs the state Govts to take administrative/disciplinary action against officers responsible for a) approving works not in the permissible list, b) approving works in violation of the norms and principle, c) not adhering to the prescribed wage: material ratio and d) not following the procedure for procurement of tools and implements. Further expenditure in violation of these norms and principles is disallowed from MGNREGA funds and the state Govts are required to meet these expenses separately as this expenditure would be treated as a liability of the State Govt. The stagnant wage: material ratio is very difficult to be maintained in all sorts of works and in all kinds of locations and situations. Though the minimum wage ratio of 60% is focused on generating maximum wage employment, yet a balance is required to be evolved. The norm must be made slightly elastic at least in