SURVEY TO MONITOR IMPLEMENTATION OF NREGA in Andhra Pradesh, Chhattisgarh, Jharkhand, Madhya Pradesh

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

2. 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 theworkers about their rights under NREGA.

3. 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.

4. Field surveys State Districts Jharkhand May Latehar, Palamau Madhya Pradesh May Barwani, Dhar Chhattisgarh May Jashpur, Surguja Andhra Pradesh June Rangareddy, Medak

5. 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.

6. 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.

7. Most of the surveyed households came from Scheduled Tribes, followed by Scheduled Castes.

8. 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.

9. Patterns of taking credit varied across states

10. But a lot of credit still came from moneylenders, traders and relatives. Reliance on moneylenders is as much as on institutional sources (37%).

11. The major reasons for indebtedness are consumption loans and loans for marriages/rituals. Medical expenses are also significant.

12. Most people lived in kuccha houses, with Adivasis being the worst off. Most (84 per cent) received nothing from Indira Awas Yojana.

13. Table 13: Percentage distribution by level of BMI by age group and sex

14. 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

15. Malnutrition is very high among the younger population

18. Per cent of households with ration cards

19. Per cent of households with ration cards, by caste

20. Levels of literacy are very low, but improving for the young.

21. School attendance is better in three states but very poor in Madhya Pradesh. Gender gaps remain.

22. Agriculture is still the dominant employer

23. 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.

24. 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.

25. Most respondents were aware of the NREGA in some way

26. But awareness was lowest among Adivasis and Dalits

27. AP had the most job card applications, while MP had the lowest

28. But once again, Adivasis and Dalits had the lowest rate of application for Job cards

29. 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.

30. Dalits and general category had the lowest rate of receiving cards after applying.

31. 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

36. 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.

37. 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.

38. 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).

39. 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.

40. 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.

41. 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.

42. 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.

43. 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.

44. 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.

45. 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”.

46. 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.

47. Problems with wages - 1 • In many cases workers did not receive the minimum wage even for a full day’s 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 day’s 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.

48. Wages observed at worksites during field survey

49. 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.

50. 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.