Implementation of MGNREGA in Assam: An Evaluation in Two Gram Panchayats of Lakhimpur District Principal Author: Dr. Suresh Dutta Associate Professor & Head Department of Economics North Lakhimpur College, Assam E-mail ID: sureshdutta76@yahoo.com Mobile No. 09435185038 Abstract Purpose: According to the 2011 Census (provisional), the rural population of India stands at 833.1 million constituting 68.84 per cent of the total population of 1210.2 million. Thus covering 6, 40,867 Villages, India remains a land of villages.! "!# $! "$!# % &''() * ) + "*) + # * ) +,& -&''. In order to fulfill Mahatma Gandhi s dream of Gram Swaraj and also to create the sense of morality among all the stake holders of the Scheme, the Government of India renamed the Scheme as Mahatma Gandhi National Rural Employment Guarantee Act (MGNREGA) in 2009 expecting a better implementation of the Scheme checking the corruption. This paper makes an attempt to examine how far this Scheme is successful in its implementation in rural areas especially esign/methodology/approach: The study has been carried out in Lakhimpur district of Assam. *) +,! *) +,"!# / proper evaluation of NREGA Scheme, two Gram Panchayats- Kamalaboria and Ujjalpur of Lakhimpur
district have been selected randomly for the study. Personal field visit, conversations with stake holders and secondary source data have been taken in to consideration for analysis and drawing inferences. Findings: *) +, 0 0 +*) +, +!moral and ethical values are not reflected in the implementation even after renaming it in the name of our Father of Nation. +! Research limitations/implications: 1) For assessing the implementation of MGNREGA, mostly secondary source data have been considered. 2) Although attempt was made to collect the data from Gram Panchayat and Block Development offices to make the comparison with primary data collected from the field, the concerned officials are not interested to cooperate with the researcher in providing the required data. 3) For giving the focus on recent data, the study is limited to cover the year 2009-10 and 2010-11 for assessing the Scheme. Practical implications: The findings of the study will help the policy makers and implementing authorities to take corrective measures for proper designing and implementation of the Scheme. Originality/value: The study is original in the sense that it covers both macro and micro level aspects of implementation of the Scheme. The findings of the study have reflected some important drawbacks in the implementation stages which were not found in the previous studies. $ + -* Gram Panchayat, Livelihood Security Paper type: Seminar paper
Introduction: According to the 2011 Census (provisional), the rural population of India stands at 833.1 million constituting 68.84 per cent of the total population of 1210.2 million. Thus covering 6, 40,867 Villages, India remains a land of villages. responsible for low labour and land productivity. The farmers, therefore, have to remain idle during the lean agricultural season. Not all farmers have access to land; some workers engaged in farming have to work as agricultural labour. There is a near absence of organized industries in the rural sector. Thus, seasonality of agriculture and its low productivity combined with absence of alternative employment opportunities are responsible for higher incidence of poverty in the rural sector! """#$$$ %$$ %$ &! ' &( ) & &&! & # *# +, '*+,( - #+, '- +,( * &!. /, '!./,( "01#0" # &
&) * #. 3 *#+ '.3*+4 ( / - 5 '/- 5.( 4 - * '4 - *( * 6 * ) 3 '*6*3( "1$""" &! 5 *. + '5*.+(,!. +, ',!.+,( 7 -, '7-,( 8. +, '8.+,(. 9 + 6, '.9+6,( :.) 3 ':.3( + * '+*( : 6 * 3 ':6*3( * 6.) 3 '*6.3( 8 7-, '8 77-,( # && / & $$;.) 8. + 6 * '8.+6*( 8. + 6 $$ 7& $$% $$1 * & 2
!! < 8. + 6!! & 8.+6 & $$ & ) < & &! 4 6 < =6 * < * 6! * 4 6 8. + 6 '4 68.+6($$" & * 8. + 6 * * & * & & > ;
* & &? & 8.+6 * 8.+6, 8.+6 ', ( & 6, 9 #? & @ & & & $$"#$ $$# & * Households Demanding Employment Along with other GPs of the district, NREGA was also undertaken for implementation in Kamalaboria and Ujjalpur GPs since 2005-06. The number of jobcard holder households under NREGA in Kamalaboria GP was 3194 and 3203 in 2009-10 and 2010-11 respectively as shown in Table 1.2. However, the number of households demanded employment was only 1669 and 1126 in 2009-10 and 2010-11 constituting 52.25 and 35.15 per cent of their respective total jobcard holder households of the GP. In Ujjalpur GP, 1208 households (58.16 per cent) out of 2077 jobcard holder households) in 2009-10 and 863 households constituting 41.43 per cent of 2083 jobcard holder households in 2010-11 have demanded employment under NREGA. The above analysis reflects %
that in comparison to the number of jobcard holder households in both the GPs, the number of households demanding employment is found to be very low as it is only 52.25 and 35.15 per cent in Kamalaboria GP and 58.16 and 41.43 per cent in Ujjalpur GP in 2009-10 and 2010-11 respectively. Thus the concerned authorities need to analyze the causes of the low demand of the households for employment under NREGA and also to take remedial measures thereof. The present study also makes an attempt to assess the employment provided to the jobcard holder households against their demand for employment under NREGA in the sample GPs. As shown in Table 1.3, the percentage of household provided employment against the total number of households demanded for employment was 98.32 and 99.47 per cent in Kamalaboria GP during the year 2009-10 and 2010-11 respectively. It was 99.92 per cent in 2009-10 and 100 per cent in 2010-11 in Ujjalpur GP. It can therefore be said that the number of households provided employment under NREGA in both the GPs and years is found to be in a satisfactory level as it ranges from 98.32 to 100 per cent against the respective demand. Households Receiving 100 Days Employment & 8.+6 & $$ & ) < & &! $% '$% ( %2 $; '$2; ( $? & 6, $$ 0
$$"#$ $$# ' & (! @ 6, $0 $2'$2 ( $$ * 1% & $$ $$# @ 6,!! " " " " #" #$ Average Households Employment under NREGA Table1.5 shows that the total number of persondays generated to 1,641 househols was 31,215 from NREGA in 2009-10 yielding only average 19.04 persondays to a beneficiary household in Kamalaboria GP. The average number of persondays to a beneficiary household in the sample GP further declined to 17.80 as the number of personsdays generated from NREGA was only 19,942 for 1,120 households during the year 2010-11. The average number of persondays generated under NREGA in Ujjalpur GP was 23.57 in 2009-10 and 19.01 in 2010-11.This has also reflected that the employment generation from NREGA for needy households is very low and thus it can be inferred that this type of limited employment benefit can only partially help the rural households in crossing their poverty and also to. 1
Employment generation to different social groups under NREGA The percentage of jobcard holder SC household to the total number of jobcard holder households of all population groups was 11.74 in 2009-10 and 11.70 in 2010-11 in Kamalaboria GP. On the other hand, the percentage of personsdays generated to the SC households seeking employment against the total personsdays generated to the jobcard holder households of all population groups was 7.26 and 6.25 in 2009-10 and 2010-11 respectively (Table 1.6). The persondays generated to SC households were also found to be lower in comparison to the number of SC households issued jobcard in Ujjalpur GP. Only 0.25 and 0.03 per cent of persondays were generated to SC households against the total number of persondays generated to all population groups in 2009-10 and 2010-11 respectively as shown in Table 1.6. It reflects that the percentages of personsdays generated to SC hoseholds are lower than the percentages of SC jobcard holder households to the total number of households of all population groups as shown in Table 1.6 and Table 1.7. This justifies that more number of employments are needed to be generated to SC jobcard holder households in order to strengthen their livelihood security under NREGA.! & 1 * & &? & 6,%1 %2$$"#$ $$# A * $$$$"#$ 0$%$$# & & & *@ 6, & & "
& * & $$# *) +,1 2 +! 3 +! "#$! 8 #*5B* 8.+6 1;2? & 6, $$"#$ &$ 8 #*5B* & & & 110 * 1%%1 8 #*5B* 1"& 8 #*5B*$$#! @ 6, 8 #*5B* & ' $$"#$ C $$#( & & * 34 *) +, 3 +! Employment Generation to Women under NREGA : 7 # & 8.+67 & & $
8.+6 in Kamalabaria GP was 24.77 in 2009-10 and 21.92 in 2010-11. The corresponding percentages of employment provided to women in Ujjalpur GP were 32.01 and 27.02 respectively. This reflects that the employment generation for women in both the GPs are found to be lower than the legal provision of the NREGA. The NREGA therefore, cannot be said to be successful in ensuring the women empowerment by generating required number of employment to women in the sample GPs and needs concerted efforts of implementing authorities to fulfill this aspects. Findings of the Study: 1) According to 2011 Census, Rural population of India stands at 833.1 million constituting 68.84 per cent of the total population of 1210.2 million % &'% & ( & ( ) ) & * '+ )) & ) '+) % % &), ( & ) ' % ' % & % &) & 2) The number of jobcard holder households under NREGA in Kamalaboria GP was 3194 and 3203 in 2009-10 and 2010-11 respectively. However, the number of households demanded employment was 1669 and 1126 in 2009-10 and 2010-11 constituting 52.25
and 35.15 per cent of their respective total jobcard holder households of the GP. In Ujjalpur GP, 1208 households (58.16 per cent) out of 2077 jobcard holder households) in 2009-10 and 863 households constituting 41.43per cent of 2083 jobcard holder households in 2010-11 have demanded employment under NREGA. The above analysis reflects that in comparison to the number of jobcard holder households in both the GPs, the number of employment seeking households is found to be very low as it is only 52.25 and 35.15 per cent in Kamalaboria GP and 58.16 and 41.43 per cent in Ujjalpur GP in 2009-10 and 2010-11 respectively. Thus the concerned authorities need to analyze the causes of the low demand of the households for employment under NREGA and also to take remedial measures thereof. 3) The percentage of household provided employment against the total number of households demanded employment was 98.32 and 99.47 per cent in Kamalaboria GP during the year 2009-10 and 2010-11 respectively. It was 99.92 per cent in 2009-10 and 100 per cent in 2010-11 in Ujjalpur GP. It can therefore be said that the number of households provided employment under NREGA in both the GPs and years is found to be in a satisfactory level as it ranges from 98.32 to 100 per cent against the respective demand. 4) ) < & &! $%'$%( %2 $; '$2; ( $? & 6, $$ $$"#$ $$#
! @ 6, $0 $2 '$2 ( $$ * 1% & $$ $$# @ 6, *) +, 5'' 5) The total number of persondays generated to 1,641 househols was 31,215 from NREGA in 2009-10 yielding only average 19.04 persondays to a beneficiary household in Kamalaboria GP. The average number of persondays to a beneficiary household in the sample GP further declined to 17.80 as the number of personsdays generated from NREGA was only 19,942 for 1,120 households during the year 2010-11. The average number of persondays generated under NREGA in Ujjalpur GP was 23.57 in 2009-10 and 19.01 in 2010-11.This has also reflected that the employment generation from NREGA for needy households is very low and thus it can be inferred that this type of limited employment benefit can only partially help the rural households in crossing their poverty and also to. 6) The percentage of jobcard holder SC household to the total number of jobcard holder households of all population groups was 11.74 in 2009-10 and 11.70 in 2010-11 in Kamalaboria GP. On the other hand, the percentage of personsdays generated to the SC households seeking employment against the cumulative personsdays generated to jobcard holder households of all population groups was 7.26 and 6.25 in 2009-10 and
2010-11 respectively. The persondays generated to SC households were also found to be lower in comparison to the number of SC households issued jobcard in Ujjalpur GP. Only 0.25 and 0.03 per cent of persondays were generated to SC households against the total number of persondays generated to all population groups in 2009-10 and 2010-11 respectively. It reflects that the percentages of personsdays generated to SC hoseholds are lower than the percentages of SC jobcard holder households to the total number of households of all population groups. This justifies that more number of employments are needed to be generated to SC jobcard holder households in order to strengthen their livelihood security under NREGA. 7) *& &? & 6, %1 %2 $$"#$ $$# A * $$ $$"#$ 0$% $$# && & *@ 6, & & & * & $$# *) +,1 2 +! 3+! 8) 8 #*5B* 8.+6 1;2? & 6,$$"#$ 8 #*5B* & 2
&& 110* 1%%1 8 #*5B* 1"& 8 #*5B*$$#!@ 6, 8 #*5B*& '$$"#$C $$#( & & * 34 *) +, 3 +! 9) & 8.+6 in Kamalabaria GP was 24.77 in 2009-10 and 21.92 in 2010-11. The corresponding percentages of employment provided to women in Ujjalpur GP were 32.01 and 27.02 respectively. This reflects that the employment generation for women in both the GPs are found to be lower than the legal provision of the NREGA. The NREGA therefore, cannot be said to be successful in ensuring the women empowerment by generating required number of employment to women in the GP and needs concerted efforts of implementing authorities to fulfill this aspects. ;
Conclusions: 8. + 6 * * & * & & > & 8.+6 4 4 68.+6 6, moral and ethical values are not reflected in the implementation even after renaming it in the name of our Father of Nation. 6, %
& '/ $#$#$( Chatterjee, S.,(2009), Estimation of Rural Poverty: A Discussion with reference to India A Research Paper prepared for presentation in Wye City Group on Statistics on Rural Development and Agrarian Household Income for the second Meeting held in Rome, Italy, 11-12 June, 2009. Bhatia,B., and Dreze, J.,(2006), Employment Guarantee in Jharkhand: Ground EPW, Vol.41, No. 29. Realities Dutta, S.,(2002), The Performance of Wage Emplopyment Programme in Assam:A Critical Study of Jawahar Rozgar Yojana in Lakhimpou District, An unpublished Ph.D thesis of Dibrugarh University. Dater, C.,(2007), Failure of National Rural Employment Guarantee Scheme in Maharastra, EPW, August 25, 2007. Tripathy,K.K., and Tripathy, I.G.,(2007), National Rural Employment Guarantee Act(NREGA): Issues, Challenges and Policy Options, Second Annual Public Policy and Management Conference( April 12-14), 2007, Centre for Public Policy, Indian Institute of Management, Bangalore, Government of India, Annual Report, 2007-08, Ministry of Rural Development, New Delhi % &,! '!4 (D * "0#02 "00#01 "1#12 "10#11 ""#"2 """#$$$. @ & % ';%2E (F %$$ '2"$E ( ';2"E ( %2 ';E ( %2% '2;( 1" ';( ;$ '2;0E ( 0$" '2$1E ( " '22;E ( F7& *D. * #$$ 8!./ A & " '"E ( 0; '1E ( $0 '1"E ( 22$ '0E ( 0% '2E ( $ '%$E ( " '0E ( %0$ '%E ( %$ '%E ( 0
No. of Total JobCard Holder Household Table1.2 GP wise Distribution of Households Demanding Employment 8.+6D Kamalabaria GP Ujjalpur GP No. of No. of Year Household Col.4 No. of Total Household Demanding to Col.3 JobCard Holder Demanding Employment Household Employment Col.7 to Col.6 1 3 4 5 6 7 8 2009-10 3194 1669 52.25 2077 1208 58.16 2010-11 3203 1126 35.15 2083 863 41.43 Source:1. Compiled from the data available in the website:www.nrega.nic.in 2. Gram Panchayat Office, Kamalaboria and Ujjalpur, Lakhimpur, 2011 Table 1.3 GP- wise distribution of Households Provided Employment 8.+6D Kamalabaria GP Ujjalpur GP Year No. of Household Demanding No. of Household Provided Col.3 to No. of Household Demanded No. of Household Provided Col.6 to Employment,Employment Col.2 Employment Employment Col.4 1 2 3 4 5 6 7 2009-10 1669 1641 98.32 1208 1207 99.92 2010-11 1126 1120 99.47 863 863 100.00 Source:1. Compiled from the data available in the website:www.nrega.nic.in 2. Gram Panchayat Office, Kamalaboria and Ujjalpur, Lakhimpur, 2011 1
Table 1.4 GP wise Distribution of Households Receiving 100 Days EmploymentD Kamalabaria GP Ujjalpur GP Year Total Household Provided Employment (No.) Total Household Getting 100 days Employment Col.3 to Col.2 Total Household Total Household Col.6 to Provided Getting 100 Col.5 Employment days (No.) Employment 1 2 3 2 ; % 0 2009-10 1641 0 6 $% 1207 $2 $2 2010-11 1120 0 5 $2; 863 $$ $$$ Source:1. Compiled from the data available in the website:www.nrega.nic.in 2. Gram Panchayat Office, Kamalaboria and Ujjalpur, Lakhimpur Table 1.5 GP wise Distribution of Average Households EmploymentD Kamalabaria GP Ujjalpur GP Year No. of Household Provided Employment Total Employment Generated (In Persondays) Average Households Employment (In Persondays) No. of Household Provided Employment Total Employment Generated (In Persondays) Average Households Employment (In Persondays) (No.) 1 2 2 ; % 0 2009-10 1641 ; "$2 1207 1 2;; ;0 2010-11 1120 " "2 01$ 863 % 2$ "$ Source:1. Compiled from the data available in the website:www.nrega.nic.in 2. Gram Panchayat Office, Kamalaboria and Ujjalpur, Lakhimpur Table 1.6 + 6 *5A? & 6,D Year No. of Households Issued Job Card Col.3 to Col.4 Cumulative Persondays Generated Col.6 to Col.5 Total SC Total SC 1 2 3 4 5 6 7 2009-10 3194 375 11.74 ; 2268 7.26 2010-11 3203 375 11.70 19942 1247 6.25 Source:1. Compiled from the data available in the website:www.nrega.nic.in 2. Gram Panchayat Office, Kamalaboria and Ujjalpur, Lakhimpur,2011 "
Table 1.7 + 6 *5A@ 6,D Year No. of Households Issued Job Card Col.3 to Col.2 No. of Persondays Generated Total SC Total SC Col.9 to Col.8 1 2 3 4 8 9 10 2077 16 0.77 28455 70 0.25 2009-10 2010-11 Source:1. Compiled from the data available in the website:www.nrega.nic.in 2. Gram Panchayat Office, Kamalaboria and Ujjalpur, Lakhimpur,2011 Table 1.8 Year 2083 16 0.77 16410 05 0.03 + 6 *A? & 6,D No. of Households Col.3 to Issued Job Card Col.4 No. of Persondays Generated Total ST Total ST Col.9 to Col.8 1 2 3 4 8 9 10 2009-10 3194 204 6.38 31,251 3189 10.20 2010-11 3203 204 6.37 19,942 1409 7.06 Source:1. Compiled from the data available in the website:www.nrega.nic.in 2. Gram Panchayat Office, Kamalaboria and Ujjalpur, Lakhimpur, 2011 $
Table 1.9 + 6 *A@ 6, D Year No. of Households Issued Job Card Col.3 to Col.4 No. of Persondays generated Total ST Total ST Col.9 to Col.8 1 2 3 4 5 6 7 2009-10 2077 16 0.77 28455 600 2.11 2010-11 2083 16 0.77 16410 116 0.71 Table 1.10 + 6 8 #*5B*A? & 6,D Year No. of Households Issued Job Card Total Non- SC/ST Col.3 to Col.4 No. of Persondays Generated Total Non-SC/ST Col.9 to Col.8 1 2 3 4 8 9 10 2009-10 3194 2615 81.87 31,251 25,794 82.54 2010-11 3203 2624 81.92 19,942 17,286 86.68 Source:1. Compiled from the data available in the website:www.nrega.nic.in 2. Gram Panchayat Office, Kamalaboria and Ujjalpur, Lakhimpur,2011 Table 1.11 + 6 8 #*5B*A@ 6, D Year No. of Households Issued Job Card Col.3 to Total Non-SC/ST Col.4 Total Non-SC/ST Col.9 to Col.8 1 2 3 4 8 9 10 2009-10 2077 2045 98.46 28455 27785 97.65 2010-11 2083 2051 98.46 16410 16289 99.26 Source:1. Compiled from the data available in the website:www.nrega.nic.in 2. Gram Panchayat Office, Kamalaboria and Ujjalpur, Lakhimpur,2011
Table1.12 GP wise Distribution of Employment Generation to Women under NREGA : Kamalaboria GP Ujjalpur GP Year Total Persondays Generated Col.3 to Col.2 Total Employment Generated (In Persondays) Col.6 to Col.5 Total Women Total Women 1 2 2 4 5 6 7 2009-10 31,251 7742 24.77 1 2;; 9110 32.01 2010-11 19,942 4370 21.91 % 22 4436 27.02 Source:1. Compiled from the data available in the website:www.nrega.nic.in 2. Gram Panchayat Office, Kamalaboria and Ujjalpur, Lakhimpur,2011