IFPRI-IGIDR Workshop on Implementation of MGNREGA in India A Review of Impacts for Future Learning - Impact of MGNREGA: Samsodhan - Shilpa Pandit

MGNREGA-SamshodhanSHILPA ASHOK PANDIT

RESEARCH OFFICER, UNDP-GOALS PROJECT, 08.06.2015

Context and Rationale for Samshodhan

Awareness and Discussion around MGNREGA in public discourse- To co-construct an informed and animated discourse.

The need to sift perception from evidence.

Review evidence and find insight for better implementation.

Sameeksha to Samshodhan-Objectives

Document and cohere various research themes and studies conducted in 2012– 14 and

Invigorate the research discourse around issues of social justice, dignity of work and the productivity and sustainability of individual and community assets.

Expand the circles of engagement with MGNREGA.

To align the different narratives that emanate from research, public perception, administration and share it with the public.

Process and Meta-Analytic Process

Inclusion and Exclusion Criteria

1st order and 2nd order review questions

The Connection between the micro and the macro-Structuration

Communicative rationality-Habermas, caveats and idea of a dialogic democracy

Theory of justice (Rawls)

“

”

Section 1, Schedule II, MGNREGA: “The adult member of every household residing in any rural area and willing to do unskilled manual work may submit the names, age and the address of the household to the Gram Panchayat at the village level, in whose jurisdiction they reside, for registration of their household for issuance of a job card”

Entitlements

Question: Is the vulnerable household able to access the right to work ? Is the programme targeted well?

Evidence and CritiqueMost research as discussed in the chapter shows that over the last 9 years, MGNREGA is moderately successful in targeting the vulnerable and the poor who are willing to do unskilled manual work. However, the critical gaps identified by researchers are: Administrative Rationing: Datta, Murugai, Ravillion and VanDeWalle(2014)

Unmet Demand: Research finds that there is a huge unmet demand. Researchers have identified the following issues that relate to unmet demand: Administrative capacity and will to implement the scheme in its spirit at the state and the local level, lack of monitoring, complexities and difficulties in reporting.

Leakages: The crucial aspect that weakens the implementation of MGNREGA is the issue of leakages; workers do not to receive their entitled wage as evidenced by research (see for example, Muralidharan, Niehaus, and Sukhtankar (2014); Niehaus, and Sukthankar (2013; Banerjee, Duflo, Imbert, Matthew and Pande,(2014).

Delay in payments-Not much research

Impact on Incomes and Livelihoods

Question -If the programme is indeed reaching the poor, then what is the impact of MGNREGA on incomes and livelihood security?

Evidence MGNREGA has helped rural households (HHs) in a sustained manner to smooth consumption

between the agricultural peak season and lean season. Klonner and Oldiges (2013, 2014), Ravi and Engler(2009), Liu and Deninger (2013), Bose(2013). Zimmerman (2014)

Jatav and Sen(2013) report two major findings. One, that though non-farm employment in

rural areas is primarily distress-driven, there are some significant entry barriers for rural workers in the non-farm sector in terms of education, age and gender. The crisis of joblessness in rural labour markets would have been more acute without MGNREGA.

Impact on Broader Human Development Indicators

Question- What could be the impact of MGNREGA work on human development indicators like education and health

Evidence Short and medium term impact of MGNREGS employment on various development indicators ; in

the short-term, participants’ caloric and protein intakes increased, indicating that one of the most important immediate effects of MGNREGS employment was an improvement in participants’ food security and nutrition. Medium-term effects, on the other hand, seemed to centre around more generalized savings. Liu and Deninger (2013; presented in 2014)

Evidence shows impact on children’s education. Nutritional shocks in early childhood can be offset by access to MGNREGS. Dasgupta (2013; presented in 2014)

Critiques Secondary research Snapshot study Keeping the household at the centre, first person accounts-Ethnographic accounts.

Labour markets and Migration

Question 1 - Has MGNREGA adversely affected the agriculture sector by raising agriculture wages and made the labour unavailable during the agriculture season?Question 2 - Does MGNREGA have an impact on risk and distress migration?

Evidence and Critique Multiple factors possible for the diversion of agriculture wage labour and affects wages-diversion into

non-farm work, growth of construction sector. The evidence on the crowding out is mixed. Gulati, Jain and Satija,(2013).

Clear and compelling evidence that MGNREGA work reduces distress migration. Das (2014), Imbert and Papp (2012), Shah and Makwana (2011)

Three rural labour market contexts possible.

Sustainable Assets

Question-Do works Exist? Do works lead to sustainable assets?

Evidence and Critique Evidence shows that works exist on the ground. Narayanan et al. (2014), Bhaskar (2015),

Aggarwal et al, (2012), IISC(2012-2013)Critiques and Gaps Capacity of the functionaries-structuration Quality of Assets Inclusion in planning-Women, Vulnerable and marginalised

Gender

Question – Indeed it is telling that, there are not many questions in the public domain on Women’s participation. The idea of ‘power’ in traditional societies and power relations. ‘Mere labouring hands’, petty cash requirements of women and elderly. Feminization of poverty

Critiques Gendered Work loafing Lack of work site facilities-related to agency Exclusion in planning Possible differential valuing work. Disadvantaged women subsets.

Social Accountability

Not much research on social accountability with a mixed verdict(Aiyer and Samji,2009; Afridi and Iversen, 2013)

Critiques

Institutionalising social audits is a challenge

Strong research tradition on social exclusion, yet its connection with MGNREGA distributive justice design is not researched.

Connection with reducing leakages.

Way Forward

More Research on Capacity and Structuration

More Research on top down vs ground up connection with political and administrative will.

Research on delay in payments

More Research on accountability-engage with non-economic research

Reducing Corruption and leakages-sociological/political approach and technocratic approach.