SURVEY TO MONITOR IMPLEMENTATION OF NREGA

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SURVEY TO MONITOR IMPLEMENTATION OF NREGA in
Andhra Pradesh, Chhattisgarh, Jharkhand, Madhya
Pradesh Centre for Budget and Governance
Accountability, New Delhi
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Purposes

• To check whether there is awareness about NREGA
  and its various aspects.
• To check conformity of the Schemes with
  Guidelines.
• To assess the difficulties faced by various
  players, including those in-charge of
  implementing the Act, and see how they can be
  addressed.
• To understand socio-economic context in which
  NREGA is operating.
• To communicate to the workers about their rights
  under NREGA.

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Survey Team

• 70 students from Jawaharlal Nehru University,
  Delhi University and Hyderabad Central
  University.
• Co-ordinated by Kaustav, with supervision by
  Himanshu, Deepak and Omkarnath, under the overall
  guidance of Kamal Chenoy, Jean Dreze, Jayati
  Ghosh and Praveen Jha.
• Fieldwork undertaken in May/June 2006 in 8
  districts of 4 states.

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Field surveys

• State Districts
• Jharkhand May Latehar, Palamau
• Madhya Pradesh May Barwani, Dhar
• Chhattisgarh May Jashpur, Surguja
• Andhra Pradesh June Rangareddy, Medak

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Methodology

• One block was chosen in each district. In each
  district, the teams surveyed one block and in
  each block, at least 5 worksites were surveyed
  and household surveys were undertaken in 2
  villages.
• There were five exercises
• Worksite surveys around 5 or 6 in each block.
• Verification of Muster Rolls.
• Random sample survey of at least 60 households in
  two selected villages.
• Discussions on implementation issues with Gram
  Panchayat representatives, Block Development
  Officer/Chief Executive Officer, Panchayat
  Sevaks.
• Public hearing to present main findings to local
  people and local authorities.
• Each field survey involved about 20 days
  residence in the area by the survey teams.

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Overall socio-economic conditions

• Extreme backwardness in terms of availability of
  basic physical and infrastructure and publicly
  delivered social services.
• Very depressed condition of the rural economy.
• Complete lack of adequate productive employment
  opportunities in the areas, creating large scale
  open and disguised unemployment and pressure for
  short term migration for work.
• Poor material condition of the local population,
  expressed most sharply in inadequate nutrition
  and very low BMIs, as well as lack of domestic
  assets for most of the people.
• Therefore, the urgent and pressing need for
  effectively implementing the NREGA in these
  areas.

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Most of the surveyed households came from
Scheduled Tribes, followed by Scheduled Castes.
CHHATTISGARH MP AP JHARKHAND Total
ST 54.6 73.3 30.0 65.6 57.2
SC 14.6 5.0 38.8 23.3 17.8
OBC 10.7 18.3 28.8 11.1 15.6
Gen 20.0 3.3 2.5 9.5
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Most of the surveyed households had little or no
land, and in general landholding was not enough
to ensure livelihood for the household, except
for very few. Dalits held the least land,
followed by Adivasis.
Acres CHHATISGARH MP AP JHARKHAND Total
Landless 12.1 23.5 18.7 12.5 15.9
0 to 1 17.1 9.6 25.3 35.2 19.9
1 to 2.5 26.1 20.9 18.7 31.8 24.7
2.5 to 5 27.6 28.7 26.7 12.5 24.9
5 to 10 8.5 11.3 6.7 4.5 8.2
10 and above 8.5 6.1 4.0 3.4 6.3
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Patterns of taking credit varied across states
CHHATISGARH MP AP JHARKHAND Total
Have not taken credit 73.2 62.5 15.0 43.3 55.8
Have taken credit 26.8 37.5 85.0 56.7 44.2
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But a lot of credit still came from moneylenders,
traders and relatives. Reliance on moneylenders
is as much as on institutional sources (37).
CHHATISGARH MP AP JHARKHAND Total
Government 3.6 2.3 2.0 1.8
Cooperative/SHG 12.7 20.5 2.9 2.0 8.7
Bank 32.7 9.1 44.1 11.8 26.6
Institutional 49.1 31.8 47.1 15.7 37.2
Employer/landlord Employer/landlord 2.3 1.5 0.9
Moneylender 20.0 45.5 36.8 49.0 37.2
Shopkeeper/trader 9.1 6.8 1.5 25.5 10.1
Relatives 20.0 4.5 13.2 2.0 10.6
Other 1.8 9.1 7.8 4.1
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The major reasons for indebtedness are
consumption loans and loans for
marriages/rituals. Medical expenses are also
significant.
ST SC OBC General
Medical 16.5 15.2 14.6
Education 1.7 4.3
consumption 20.0 10.9 12.2 11.1
marriage/ceremony 20.9 15.2 17.1 33.3
land/building 7.0 30.4 14.6 11.1
Other productive 25.2 21.7 26.8 33.3
Repayment 0.9
Others 7.8 2.2 14.6 11.1
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Most people lived in kuccha houses, with Adivasis
being the worst off. Most (84 per cent) received
nothing from Indira Awas Yojana.
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Table 13 Percentage distribution by level of BMI
by age group and sex
Age group 0 to 5 0 to 5 0 to 5 5 to 15 5 to 15 5 to 15 15 to 60 15 to 60 15 to 60 60 and above 60 and above 60 and above
BMI Male Female total male female Total male female Total male female total
Chhatisgarh Chhatisgarh Chhatisgarh Chhatisgarh Chhatisgarh Chhatisgarh Chhatisgarh Chhatisgarh Chhatisgarh Chhatisgarh Chhatisgarh Chhatisgarh Chhatisgarh
Less than 15 50.0 66.7 60.9 40.9 53.8 47.9 1.6 3.8 2.9
15 to 18.5 25.0 20.0 21.7 31.8 30.8 31.3 29.5 20.5 24.5 40.0 25.0
18.5 to 20 13.6 7.7 10.4 18.0 26.9 23.0 66.7 20.0 37.5
20 to 25 25.0 8.7 9.1 7.7 8.3 49.2 44.9 46.8 33.3 20.0 25.0
25 and above 13.3 8.7 4.5 2.1 1.6 3.8 2.9 20.0 12.5
Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh
Less than 15 54.5 37.5 47.4 52.9 45.5 48.7 1.8 1.3 1.5 20.0 7.7
15 to 18.5 27.3 37.5 31.6 47.1 45.5 46.2 21.4 32.0 27.5 20.0 62.5 46.2
18.5 to 20 9.1 12.5 10.5 28.6 14.7 20.6 20.0 7.7
20 to 25 12.5 5.3 9.1 5.1 42.9 42.7 42.7 40.0 25.0 30.8
25 and above 9.1 5.3 5.4 9.3 7.6 12.5 7.7
Jharkhand Jharkhand Jharkhand Jharkhand Jharkhand Jharkhand Jharkhand Jharkhand Jharkhand Jharkhand Jharkhand Jharkhand Jharkhand
Less than 15 47.5 44.8 46.4 74.5 62.2 68.5 3.7 2.1 2.9 25.0 8.3
15 to 18.5 30.0 20.7 26.1 17.0 28.9 22.8 46.9 43.6 45.1 75.0 50.0
18.5 to 20 10.0 6.9 8.7 2.1 4.4 3.3 30.9 29.8 30.3 25.0 50.0 33.3
20 to 25 7.5 10.3 8.7 6.4 4.4 5.4 18.5 23.4 21.1 25.0 8.3
25 and above 5.0 17.2 10.1 1.1 0.6
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Total Total Total Total Total Total Total Total Total Total Total Total Total
Less than 15 49.2 50.0 49.5 61.6 55.9 58.7 2.5 2.4 2.5 6.3 5.9 6.1
15 to 18.5 28.8 23.1 26.1 26.7 33.3 30.2 34.3 32.8 33.5 43.8 41.2 42.4
18.5 to 20 8.5 5.8 7.2 4.7 4.3 4.5 26.3 24.3 25.2 31.3 17.6 24.2
20 to 25 8.5 7.7 8.1 5.8 6.5 6.1 34.8 36.0 35.5 18.8 23.5 21.2
25 and above 5.1 13.5 9.0 1.2 0.6 2.0 4.5 3.4 11.8 6.1
Note BMI less than 15 severe malnourishment,
15-18.5 malnourished, 18.5 to 20 normal but
underweight, 20 to 25 normal, more than 25
overweight For MP, height and weight were not
calculated
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Malnutrition is very high among the younger
population
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Per cent of households with ration cards
CHHATISGARH MP AP JHARKHAND Total
BPL 35.6 61.7 86.3 38.9 50.6
APL 16.1 9.6 3.8 1.1 9.8
Antyodaya 14.6 10.4 6.3 18.9 13.1
Annapurna 0.5 0.2
No card 33.2 18.3 3.8 41.1 26.3
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Per cent of households with ration cards, by
caste
ST SC OBC General
BPL 50.4 58.0 57.1 32.3
APL 12.2 9.1 3.9 9.7
Antyodaya 14.4 4.5 15.6 6.5
Annapurna
no card 23.0 28.4 23.4 51.6
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Levels of literacy are very low, but improving
for the young.
5 to 15 5 to 15 5 to 15 15 to 60 15 to 60 15 to 60 60 and above 60 and above 60 and above
Male Female total Male female Total Male female total
Chhattisgarh Chhattisgarh Chhattisgarh Chhattisgarh Chhattisgarh Chhattisgarh Chhattisgarh Chhattisgarh Chhattisgarh Chhattisgarh
Literate 89.6 88.4 89.0 61.3 33.0 47.1 25.0 5.9 15.2
Illiterate 10.4 11.6 11.0 38.7 67.0 52.9 75.0 94.1 84.8
Madhya Pradesh Madhya Pradesh Madhya Pradesh Madhya Pradesh Madhya Pradesh Madhya Pradesh Madhya Pradesh Madhya Pradesh Madhya Pradesh Madhya Pradesh
Literate 42.6 33.3 37.9 15.6 5.7 10.7 5.6 5.6 5.6
Illiterate 57.4 66.7 62.1 84.4 94.3 89.3 94.4 94.4 94.4
Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh Andhra Pradesh
Literate 87.0 85.5 86.2 45.0 19.3 31.7 11.1 0 4.8
Illiterate 13.0 14.5 13.8 55.0 80.7 68.3 88.9 100.0 95.2
Jharkhand Jharkhand Jharkhand Jharkhand Jharkhand Jharkhand Jharkhand Jharkhand Jharkhand Jharkhand
Literate 78.4 68.1 73.4 42.6 13.7 28.5 10.0 6.3
Illiterate 21.6 31.9 26.6 57.4 86.3 71.5 90.0 100.0 93.8
Total Total Total Total Total Total Total Total Total Total
Literate 73.0 67.6 70.2 45.9 21.7 33.8 13.2 3.8 8.5
Illiterate 26.8 32.4 29.6 54.1 78.3 66.2 86.8 96.2 91.5
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School attendance is better in three states but
very poor in Madhya Pradesh. Gender gaps remain.
Male Female Total
Chhattisgarh 90.4 77.0 83.5
Madhya Pradesh 35.6 24.8 30.1
Andhra Pradesh 81.2 75.4 78.3
Jharkhand 83.8 72.5 78.3
Total 71.8 60.8 66.3
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Agriculture is still the dominant employer
Chhattisgarh Chhattisgarh Chhattisgarh MP MP MP AP AP AP Jharkhand Jharkhand Jharkhand Total Total Total
Occupation Male female total male female total male Female Total male female total male female total
Regular 2.5 1.1 1.8 1.0 0.3 0.7 0.8 0.7 0.8 2.1 1.1 1.8 0.6 1.2
Self-emp in agriculture 26.3 14.9 20.7 33.6 20.7 27.0 19.3 16.1 17.7 25.4 1.2 13.9 26.4 13.9 20.2
Agricultural labour 11.2 5.5 8.4 11.7 6.6 9.1 18.5 26.6 22.6 4.6 0.4 2.6 11.3 8.8 10.1
Casual labour in non-agri 10.9 3.0 7.0 12.4 12.5 12.4 12.0 5.2 8.6 7.8 0.8 4.5 10.8 5.1 8.0
Self-emp in non-agri 2.5 0.9 1.7 2.7 0.3 1.5 3.1 4.9 4.0 5.3 1.2 3.3 3.2 1.6 2.4
Student 23.6 23.6 23.6 10.4 7.5 9.0 28.6 23.2 25.9 29.0 22.7 26.0 22.8 19.8 21.3
Old/infant 12.1 9.4 10.8 1.7 3.3 2.5 11.6 14.2 12.9 19.8 22.3 21.0 11.3 11.4 11.3
Disabled 0.2 0.2 0.2 0.3 0.2 0.4 0.7 0.6 0.4 0.2 0.1 0.4 0.2
Domestic worker 1.7 34.3 17.6 2.3 22.3 12.4 0.8 4.9 2.9 1.1 46.1 22.4 1.5 28.2 14.7
No work 8.0 6.9 7.5 23.8 25.9 24.9 0.8 3.0 1.9 4.2 3.9 4.1 9.2 9.8 9.5
Other (including cant say) 1.0 0.2 0.6 0.3 0.3 0.3 4.2 0.4 2.3 1.1 1.2 1.1 1.5 0.4 1.0
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Features of employment

• High work participation rates reported in
  general.
• Women mainly reported to being domestic workers
  and self-employed in agriculture, in traditional
  pattern of specialisation.
• Most workers were casual labour in agriculture or
  non-agriculture.
• There was high participation in public works,
  especially in MP (except in AP because survey
  there was conducted in June when rains had
  started).
• Open unemployment and not working (also
  probably unemployment) was very high in
  Chhattisgarh (20) and moderately high (7) in AP
  and Jharkhand, apparently low in MP.
• Wages received were typically very low, around
  half the minimum wage of the states.
• Short-term migration for work was widely
  prevalent.

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Migration Profile

• Mostly men migrate.
• Minimum distance 50 kms Max. distance more than
  1000 kms.
• Migrants generally find work as agricultural
  labour in places where they migrate and
  construction workers.
• Duration of migration Mostly between 2 weeks to
  4 months.
• Very exploitative conditions of work for migrant
  workers.

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Most respondents were aware of the NREGA in some
way
Are you aware of NREGA? CHHATISGARH MP AP JHARKHAND Total
Yes 69.3 45.0 97.5 28.9 60.6
No 30.7 55.0 2.5 71.1 39.4
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But awareness was lowest among Adivasis and
Dalits
Are you aware of NREGA? ST SC OBC General
Yes 50.5 65.9 83.1 80.6
No 49.5 34.1 16.9 19.4
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AP had the most job card applications, while MP
had the lowest
Have you applied for Job Card? CHHATISGARH MP AP JHARKHAND Total
Yes 52.7 35.0 76.3 72.2 55.8
No 47.3 65.0 23.8 27.8 44.2
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But once again, Adivasis and Dalits had the
lowest rate of application for Job cards
Have you applied for Job Card? ST SC OBC General
Yes 49.8 54.5 72.7 64.5
No 50.2 44.3 27.3 35.5
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In MP job cards were distributed without
applications AP had the highest rate of
receiving cards among those who had applied. In
Jharkhand and Chhattisgarh the ratio was very
low.
Have you received a job card? CHHATISGARH MP AP JHARKHAND Total
Yes 39.5 90.0 70.0 33.3 55.6
No 60.5 10.0 30.0 66.7 44.4
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Dalits and general category had the lowest rate
of receiving cards after applying.
Have you received a job card? ST SC OBC General
Yes 60.8 45.5 59.7 35.5
No 39.2 54.5 40.3 64.5
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Issues regarding NREGA Implementation

• Micro profile of employment, wage and migration
• Awareness about NREGA and Guidelines
• Job card application and distribution
• Application for work
• List of works
• Worksite facilities
• Wages determination and payment
• Conditions at worksite
• Muster rolls
• Transparency, accountability and social audit
• Unemployment allowance

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Problems about awareness

• In many areas, the Guidelines had not been
  received or were not available in Hindi/local
  language.
• The idea that NREGA is demand-driven has still
  not permeated among local officials in most
  areas.
• Workers were mostly unaware about their specific
  rights and the processes that are required to
  avail of the rights.
• The transparency guidelines in particular were
  not known and not seen to be compulsory.
• Panchayat sevaks who have to create awareness are
  overworked and underpaid.

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Recommendations about awareness

• There should be special training provided to
  local officials in charge of the scheme,
  especially about the Guidelines. In addition to
  circulars, special meetings should be held at
  district and state government level.
• Much more dissemination about the Act and the
  scheme in required among the people generally.
• More financial resources have to be set aside for
  creating awareness.
• Local networks, radio advertisements, cultural
  troupes, should all be used for official
  dissemination.
• Local organisations and students should also be
  used, focusing on some areas intensively on a
  pilot basis.

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Problems with job cards application and
distribution -1

• Job cards were sometimes not available.
• Receipts were not provided when applications are
  submitted.
• Joint families were registered as one household,
  because of problems with the definition of
  household.
• Money was being charged for forms in some cases
  (e.g. in Jharkhand).

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Problems with job cards application and
distribution -2

• Lists used to define residence led to rejection
  of applications in some cases, e.g. the BPL 2002
  Census criterion in Palamau, Jharkhand 1997-98
  Voters list in MP, etc.
• Female Headed Households were sometimes denied.
• Cards were distributed according to quota and
  by caste/community/tribe. (Jharkhand,
  Chhattisgarh).
• Panchayat sevaks have to distribute cards to 2 or
  3 panchayats, which is difficult and
  time-consuming.

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Recommendations for job cards application and
distribution

• Application forms should be made easily
  available.
• Dated receipts should be provided with all
  applications.
• Clarity is required on the definition of
  residence as well as the nuclear family as the
  household unit. Circulars should be issued
  accordingly to all DCs/DMs.
• The eligibility of women to be heads of household
  should be reiterated, not only in cases of
  widowhood etc., but all other situations,
  including in cases of male temporary migration.
• Checks are required to ensure that no
  caste/community/tribal group members are denied.
• District Administrations should ask for weekly
  progress reports, by village or panchayat, on job
  card application and distribution.

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Problems with application for work

• Many workers are not aware that work has to be
  applied for after the job card is received.
• Dated receipts are not being given to workers.
• Often work is provided not on the basis of
  applications, but simply when the local authority
  decides to set up a work and therefore mobilises
  workers.

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Recommendations on application for work

• The need to apply for work in addition to
  receiving a job card must be made clear to all
  workers as part of the dissemination.
• Periodic checks should be conducted to ensure
  that dated receipts are provided.

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Problems with list of works

• Local authorities and panchayats lack adequate
  technical support to identify appropriate works
  and estimate labour and other requirements.
• Works are being identified in centralised fashion
  without participation by gram sabhas. Top-down
  approach of earlier schemes is being repeated.
• In some cases, even when local people had made
  their wishes clear, the preferred work was not
  chosen.
• Too much focus on roads and big ponds instead of
  creating productive assets which meet local
  needs.

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Recommendations on list of works

• More technical staff engineers etc. should be
  made available at the local level. This can
  involve mobilising retired people and others
  willing to work in particular areas. More
  resources have to be set aside for this.
• Need to involve local groups (at the
  state/district level) for wider consultations
  regarding type of works and estimates.

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Problems with worksite facilities

• In most worksites there was no crèche or
  provision for first aid.
• Drinking water was also not being provided and
  there was no effort to ensure shade in the
  vicinity for resting.
• Machines were being used on some sites.
• Local contractors were present at some sites, in
  MP in the guise of mates.

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Recommendations for worksite facilities

• Labour Enforcement Officer should ensure that all
  facilities are provided and penalise
  non-provision.
• More clarity is required on who can be a mate
  should be chosen from among the workers.
• In areas where contractors have been
  traditionally important and continue to dominate
  (e.g. MP), particular effort should be made to
  ensure that they are not involved at the work
  sites in any way.

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Problems with wages - 1

• In many cases workers did not receive the minimum
  wage even for a full days work. The major
  exception is Andhra Pradesh.
• Very significant underpayment was observed in
  some areas, e.g. MP and Chattisgarh as low as
  Rs. 6 -13 per day for a full days digging work.
  
• The work norms (District Schedule of Rates) were
  unrealistic and need to be revised downwards.
  Once again AP is the exception.
• Because of payment based on groups, there were
  some cases of false muster rolls (MP) leading to
  more workers being listed and therefore reduction
  of per worker wage.

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Wages observed at worksites during field survey
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Problems with wages - 2

• Measurement of work is not made in front of the
  workers.
• Engineers do not visit the sites regularly and
  frequently as they are currently too few in
  number.
• Payments are often not made on time. There were
  cases of delay in payments even after money was
  received at the panchayat level.
• Women often received lower wages for similar
  work.

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Recommendations for wages

• The District Schedule of Rates needs to be
  revised in Jharkhand, Chhattisgarh and MP (it has
  already been revised in AP).
• Where workers are receiving very low wages, they
  should be paid a daily rate for work instead of
  piece rate, until the rates are revised.
• More engineers are required to visit the work
  site regularly and calculate the basis of payment
  in front of the workers.
• Payments must be made regularly and periodic
  checks are required to ensure this.

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Problems with muster rolls

• Except in AP, muster rolls were not displayed and
  were not available for public inspection even at
  the offices.
• In some areas (e.g. MP) muster rolls were treated
  as secret and not be to divulged, with no local
  official awareness of the NREGA guidelines.

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Recommendations for muster rolls

• Muster rolls must be displayed prominently at all
  worksites.
• Where workers are mostly illiterate, muster rolls
  must be read out at the end of the days work.
• Failure to comply with these norms should be
  dealt with strictly and made examples of.

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Transparency, accountability and social audit

• Problems
• In some areas, (observed in MP, Chhattisgarh,
  Jharkhand) the local administration or other
  authorities (mainly at the Block level) obstruct
  peoples right to information and open
  expression.
• Officers are often not willing to be present at
  Jan Sunwais and respond positively to feedback.
• Recommendation
• Jan Sunwais should be given some priority by
  MoRD and state-level administration, with clear
  guidelines to local officials regarding presence
  and conduct during Jan Sunwais

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HAR HAATH KO KAAM DO ! KAAM KA PURA DAAM DO !!