i A Study on the Performance of NREGS in Kerala Sponsored by MINISTRY OF RURAL DEVELOPMENT GOVT. OF INDIA NEW DELHI Funded by UNITED NATIONS DEVELOPMENT PROGRAMME (UNDP) NEW DELHI DEPARTMENT OF EXTENSION EDUCATION GANDHIGRAM RURAL INSTITUTE (Member, Professional Institutional Network of NREGA) GANDHIGRAM - 624 302 DINDIGUL DISTIRCT TAMILNADU
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Transcript
i
A Study on the Performance of NREGS in Kerala
Sponsored by
MINISTRY OF RURAL DEVELOPMENT GOVT. OF INDIA
NEW DELHI
Funded by
UNITED NATIONS DEVELOPMENT PROGRAMME (UNDP) NEW DELHI
DEPARTMENT OF EXTENSION EDUCATION
GANDHIGRAM RURAL INSTITUTE
(Member, Professional Institutional Network of NREGA)
GANDHIGRAM - 624 302
DINDIGUL DISTIRCT
TAMILNADU
ii
Acknowledgement
We sincerely express our deep sense of gratitude to Dr.Rita Sharma IAS,
Secretary and Ms.Amita Sharma IAS, Joint Secretary in the Ministry of Rural
Development, Government of India for providing us a wonderful opportunity of
associating ourselves in a very significant and an unprecedented scheme in the
annals of rural development in the country. A series of meetings arranged and
addressed by them on the various issues related to NREGS has helped us to have a
firm grip over the subject. We are thankful to Ms. Neelakshi Mann, Consultant,
Department of Rural development for her support in conducting the study.
We express our deep sense of gratitude to UNDP for their funding support in
undertaking the study.
We are thankful to Shri. S.M. Vijayanand IAS, Principal Secretary,
Department of Local Self Governance, Government of Kerala, for extending
necessary inputs and support in carrying out the study. His suggestions, especially at
the initial stage of study, on the methodology and in selecting sample districts and
blocks were of immense help to us. We are also indebted to Shri. T.K.Jose IAS,
Secretary, Department of Local Self Governance, Govt.of Kerala, for extending
necessary support in the initial stages of the study.
We acknowledge our sincere thanks to Shri. V.N. Jithendran IAS, Mission
Director, NREGA, who has been constantly helping us throughout the study. His
critical comments on tools for data collection have helped us in fine-tuning the tools.
We extend our special thanks and appreciation to Shri.B.S.Thirumeni, Joint
Development Commissioner, NREGA, Government of Kerala for his co-operation
and support in undertaking the study.
We thank all the DPAU Coordinators- Shri. Unnikrishnan Nair of Palakakd
district, Shri. C.V.Joy of Wayanad district, Shri. K.Rajendran of Idukki district and
Shri. K.Janardhanan Pillai of Palakkad district for their continuous support in
gathering all the required data regarding NREGS and for facilitating the field work.
iii
There are many officials at various administrative capacities who facilitated
and helped us in organizing and conducting the field work. We wholehearted
acknowledge and appreciate the help rendered by them. The officials are -
Shri.P.Vinod Kumar, Executive Director of Maithri and his staff and volunteers, Smt.
Work under NREGS has emerged as primary occupation for 17 percent and as secondary occupation for two-third of the rural households.
xii
vast majority of the households (two- third) NREGS has emerged as a
secondary occupation. One-third of the households have an income of less
than Rs.24,000/-. Possession of assets and livestock is low. Major sources
of borrowings are commercial banks, co-operatives and self help groups.
Money lenders are getting marginalized. Borrowings were resorted to mainly
for productive and consumption purposes. Sample households mainly belong
to poor and moderate households, which indicate that the scheme has
reached the right type of households.
Start-up activities designed and carried out under the scheme have
generated a very high level of awareness about the scheme among the
households. Inspite of initial hiccups in registration due to certain
mis-conception about the scheme, it has reached the deserving households
due to special efforts initiated by the functionaries of the scheme. A vast
majority of the registered households were issued job cards free of cost within
15 days. There were instances of delay in issuing job cards due to non-
availability of staff and delayed production of required documents by the
beneficiaries. Job cards are computerized and are in possession of job
seekers.
Works are identified and prioritized by the Gram Sabha meeting
actively facilitated by the functionaries of
the panchayats and Kudumbasree. There
have been problems in identifying the
works as per the provisions of the Act as
the geography of each district distinctly
differs and as the availability of common natural resources is less in many
panchayats. These problems are, to a certain extent, solved through a
process of convergence with other departments like irrigation, public work,
agriculture, forestry, fisheries, etc.
All the households registered under the scheme did not participate. 50
to 60 per cent of the households participated. Dated receipts were given to
the participants who applied for the job. Around 72 per cent of the job seekers
were offered job within 15 days. Wayanad leads with an average time-lag of
12 days. A few respondents were found to have received unemployment
allowance.
“There is a marked improvement in the participation of the people in Gram Sabha meeting and the people demand such schemes and projects that enhance their well-being”.
- A functionary of the panchayat.
xiii
Works are executed in a methodical and systematic manner. Every
panchayat follows a definite
process. The average number of
days employed has recorded a
steady up-ward trend. The average
number of days employed is high
among the SC/ST households
indicating their active participation in the scheme. Yet another sign of active
participation is the percentage of households
employed for 100 days. It has increased from two
per cent to 14 per cent. Wayanad leads with 30
per cent of the households employed for 100 days.
Majority of the respondents are found to have
participated in works like road connectivity
(56.4%), flood control and protection (35.5%), cleaning of irrigation canals and
channels (26.6%), renovation of traditional water bodies (22.6%) and water
conservation and harvesting (19.4%). Inter-district variations could be
observed, which is due to variations in geographical condition among the
districts.
The worksites are within the radius of 5 km. from the place of residence
of households. 95 per cent of the workers are able to reach the work site by
walk. The time schedule adopted (8 am to 5 pm) was reported as not
conducive to women in general and workers in Alapuzha district in particular.
Basic facilities are made available at the work site;
however, majority of the workers felt that they were
inadequate. They demand more facilities. The
workers have come across certain problems at the
worksite which includes: heavy tools, inability to
work continuously in water-logged areas, inability to adhere to the time
schedule, lack to toilet facility, etc.
Muster rolls are maintained at the work site by the mates, who are
mainly women and are drawn from Kudumbasree. They are well trained in
the tasks expected of them. 98.4 per cent of the respondents are aware of
the minimum wages prescribed. Wages under the scheme are distributed
Average no. of days employed
District 2006-07 2007-08 2008-09
Palakkad 13 36 53
Idukki - 5 29
Wayanad 24 50 60
Alapuzha - - 13
All 9 22 39
“We remained idle without work before NREGS. We are now assured work for 100 days with an assured income of Rs.12,500/- per annum”.
- NREGS women workers
“Everyone now is willing to lend me as my debt servicing capacity has increased due to income through NREGS”.
- NREGS worker
xiv
through banks and post offices. No incident of ‘payment of wages by cash’
was reported. Around two-third of the respondents received the wage within
15 days and rest had to wait due to delay in measurement of work, delay in
providing muster roll and inadequate staff.
Wages for men under NREGA was much lower compared to locally
prevailing wage rates. In Alapuzha district the
local wage rate is double the wage rate under
NREGA. However, NREGA wage rate for
women is high compared to locally prevalent
wage rates. The net difference is Rs.14/-.
The scheme has discernable impacts on income, expenditure pattern,
savings, migration, status of women, social
relationship, livestock population and household
assets. The benefits of the scheme as perceived
by the respondents to the rural households are
guaranteed employment, improved income and
better education to children. Benefits to the
community (population) include better network of
roads, regeneration of water bodies, improved
irrigation facilities and so on.
The social audit system has been grounded and adopted in all the
panchayats. Social audit reports are submitted in Gram panchayat and sent
to authorities concerned for appropriate action. Complaints received are
settled then and there.
Convergence of scheme with various departments such as, irrigation,
agriculture, public works, fisheries and forestry could be observed, which help
in effective identification and execution of various types of works.
The performance of the scheme has been rated as ‘very good’, in
crucial areas like, ‘process of registration’, ‘issue of job cards’, ‘selection of
worksite’, ‘supervision at the worksite’, ‘support of government officials’ and
‘participation of people’. Whereas, certain variables such as, execution of
work, quality of the work executed, facilities at the worksite, mode of
distribution of wages and ‘transparency’ have been rated as ‘good’ which
means that there is need and scope for further improvement in such areas.
Effects of NREGA
• Improved income
• Shift in expenditure pattern
• Improved savings
• Decline in migration
• Better social relationship
• Better education for children
“Going with an empty stomach in order to provide food to my children is a thing of the past. All the members of the family are now assured of food”.
- NREGS woman worker
xv
The overall functioning of the scheme as rated by the respondents and
as reiterated in the focus group discussion is ‘good’. The credit for the
performance goes to Gram Sabha, the Panchayats, Kudumbasree and the
Government functionaries at different levels who played very critical role in
grounding and implementing the scheme.
The suggestions to take the scheme to greater heights and make it
sustainable as recommended by stakeholders at different levels include;
i)100 days of employment per adult member per household instead of per
household; ii) temporary suspension of NREGS works during the peak
agricultural season; iii) permission to take up land improvement in private
lands with the financial participation of land owners; iv) upward revision of
wages taking into account the local situation; iv) flexibility in schedule of
working hours; vi) region based specific plans instead of adapting blue-print
type of guideline; vii) permission to reintervene based on nature of work;
viii) permission to take up work involving material cost; ix) delegation of
responsibilities and power from the block to the panchayat; x) appointment of
skilled personnel wherever required and xi) providing better infrastructure like
improved tools, computers with BSNL internet connectivity, vehicles and
human resources at panchayat level.
* * * * *
Chapter - 1
National Rural Employment Guarantee Scheme
An Overview
Introduction
National Rural Employment Guarantee Scheme (NREGS), the first
ever programme giving legal guarantee to a minimum of 100 days of work in a
financial year, is a Public Works Programme (PWP). PWPs are defined as “all
activities which entail payment of wage (in cash or in kind) by the state, or by
an agent acting on behalf of the state in return for a provision of labour, in
order to: i) enhance employment; and ii) produce an asset (either physical or
social) with the overall objective of promoting social protection for participants”
(Anna Macord 2009). There are, by and large four distinct, although
sometimes overlapping types of PWPs. They are: i) PWPs offering a single
short-term episode of employment which provide a ‘risk coping’ or protective
forms of social protection; ii) large scale government employment programme
which are response to chronic or sustained levels of elevated employment.
Under this type, State acts as an employer of the last resort aiming to raise
aggregate employment on a sustained basis; iii) programme promoting the
labour intensification of government infrastructure spending with primary
objective of constructing assets while increasing aggregate labour usage; and
iv) programmes which enhances employability by promoting work place
experience and skills formation among the unemployed. NREGS belongs to
the second type of PWP.
NREGA and its Features
India had the experience of operating many types of PWPs. NREGS
has evolved into its present shape by building on the past experiences in
designing and executing schemes providing employment. It is an
improvement over its predecessors. The employment envisaged under the
scheme is defined as a constitutional right so that the state offers a
2
guaranteed number of days of employment each year to one unemployed
work-seeker from any rural household seeking employment. It puts the people
with rights to seek employment in a legal framework and approaches
development through the socio and economic empowerment of the poor and
the marginalized.
Described as ‘flagship programme’, ‘first ever scheme that guarantee
wage employment at an unprecedented scale’, ‘mother of all local
development programme’, ‘demand-driven and people-centered programme’,
‘boon to the rural poor’, ‘lifeline to the marginalized and landless’, ‘the largest
employment programme in human history’, the scheme was introduced
through an Act known as ‘National Rural Employment Guarantee Act’ notified
on Sep. 7, 2005.
The Act came into force on Feb. 2006. The salient features of Act are:
i) application by the adult members of the rural households to the local
panchayat seeking registration; ii) issue of job cards by the panchayat within
15 days from the date of application; iii) written application by the job card
holders to the panchayat seeking employment; iv) issue of dated receipt of
written application for employment; v) provision of employment within 15 days
of application for work failing which payment of unemployment allowance; vi)
provision of work within a radius of 5 km from the village (payment of extra
wages of 10 per cent, if the work provided is beyond 5 km); vii) payment of
wages as per the minimum wages act; viii) provision of equal wages for men
and women; ix) disbursement of wages on a weekly basis; x) women should
constitute one-third of the workers; xi) provision of facilities at the work site;
xii) shelf of project as recommended by the Grama panchayat and approved
by zilla parishad; xiii) permissible works are predominantly soil and water
conservation, afforestation and land development; xiv) wage material cost
ratio should be 60 : 40 (no room for machine and contractors); xv) social audit
has to be undertaken by the Grama Sabha; xvi) institution of grievances
redressal mechanism for ensuring responsive implementation process; and
xvii) all accounts are subject to public scrutiny resulting in accountability and
transparency of the scheme.
3
Objectives of NREGS
The primary objective of the Act is augmenting wage employment.
More specifically, the Act aims at: i) providing a right based 100 days
employment in a year to strengthen the subsistence livelihood support,
enhancing the rural households purchasing power and capacity to alleviate
hunger; and ii) directing the colossus amount of wages towards creating
productive and durable assets of irrigation, drought proofing, land and water
conservation, horticulture and connectivity to general prosperous livelihood
support system. The ultimate objective was to benefit the entire community
by providing employment; raising agricultural productivity and increasing
natural resource base, particularly water. The process envisaged to attain the
objectives would result in strengthening the grassroots processes of
democracy and infusing transparency and accountability in governance.
Progress of NREGS
The scheme has been implemented in a phased manner. It was
introduced in 200 most backward districts of the country in Phase I (February
2006). It was implemented in 130 more districts in Phase II during 2007-08.
The scheme was further extended to the remaining 285 rural districts of India
from April 1, 2008 in phase III in order to bring the whole nation under its
safety net. The programme was first launched on 2nd Feb. 2006 from
Anantapuri District of Andhra Pradesh.
The budget outlay on the scheme has steadily gone up over a period of
three years. Started with a budget outlay of Rs.11,300 crores in 2006-07, the
scheme has budget outlay of Rs. 30,000 crores in 2008-09 indicating a three-
fold increase over a period of three years, mainly due to phased extension of
the programme to different districts. Employment opportunities and wage rate
have significantly gone up since the implementation of the scheme. The
employment provided to the rural households has recorded more than two-
fold increase from 2.10 crore households in 2006-07 to 4.51 crore households
in 2008-09. The person days of employment witnessed a sharp increase from
90.5 crore person days in 2006-07 to 216.32 person days in 2008-09. The
4
average wage paid under NREGA has increased from Rs.65 in 2006-07 to
Rs.84 in 2008-09; minimum wages for agricultural labourers have increased
after the implementation of the scheme. For instance, the minimum wages in
Maharastra has increased from Rs.47 to Rs.72; in Uttar Pradesh from Rs.58
to Rs.100; in Bihar from Rs.68 to Rs.81; in West Bengal from Rs.64 to Rs.75;
in Madhya Pradesh from Rs.58 to Rs.85 and in Chattisgarh from Rs.58 to
Rs.72. Further, a major chunk of the expenditure has gone in the form of
wages. The act has mandated that wage material ratio should be 60:40. But
then, the percentage of wages to the total expenditure has been hovering
around two–third of the total expenditure indicating much better flow of funds
in the form of wages to the target beneficiaries than mandated (See Table
1.1).
The works taken up under the scheme are mostly related to water
harvesting and conservation, flood control and protection, micro irrigation
works, provision of irrigation facilities on the land owned by SC / ST
households, renovation of traditional water bodies, land development, drought
proofing and rural connectivity. Total number of works taken up has increased
from 8.35 lakhs in 2006-07 to 27.75 lakhs in 2008-09. Around 50 per cent of
the works are related to water conservation; 20 percent of the works are
related to provision of irrigation facility to individual beneficiaries; and around
15 per cent to land development indicating that a vast chunk of the funds has
been spent on soil and water conservation leading to improved livelihood
security to rural households.
The Act has focused on SC/ST households. Around 55 per cent of total
households are SC/ST households indicating the massive participation of
SC/ST households in the scheme. The Act mandates that a minimum of one-
third of the beneficiaries should be women. The national average shows that
women participation was 41 per cent in 2006-07; it registered steady increase
recording 43 percent in 2007-08; 47.88 percent in 2008-09 and 51.15 percent
in 2009-10 (upto October 2009). The women participation thus has surpassed
have reported that worksites were located within a radius of 3 km from their
residence. (See Table 5.12).
When the worksite lies beyond 5 km from the headquarters, transport
allowance needs to be paid, 30 respondents (4.8%) reported to have received
transport allowance.
84
Mode of transport
A vast majority of the respondents (95%) were able to reach worksite
by walk as the distance to worksite was less than 3 km. in all the panchayats.
Very few used other modes of transport such as bus, jeep, auto and bike.
District-wise analysis shows that workers in Idukki and Wayanad used Jeep,
bus and Auto (See Figure 5.4). Boats were the mode of transport in Alapuzha.
The mode of transport depends on the geographical condition and the type of
transport facilities available in the district.
Figure 5.4 Mode of Transport
96.491.3
96.6 96.9 95
3.67.5
3.1 0.6 3.70
15.610.6
006.9
0.6 0 1.90 0 04.4 1.1
6.8
0
20
40
60
80
100
120
Palakkad Idukki Wayanad Alapuzha Total
Districts
Perc
en
t
Foot Bus Jeep Auto Boat
The transport cost incurred by majority of the respondents (out of 30
respondents) was less than Rs.10/-. Very few respondents were found to
have incurred Rs.10/- to Rs.20/- The transport cost in the case of distance
exceeding 5 km was borne by the Panchayats. When the distance is less than
5 km. the workers met the travel expenses.
Working hours
The working hours as reported by majority of the respondents (88%)
across the districts is that the work commences at 8 am and closes at 5 pm.
In a few places of the districts, the works commenced at 9 am and or at 8.30
a.m. (See the Table 5.13). The workers do have lunch and tea breaks.
The working time and duration varies across the Districts. For instance,
the workers in Alapuzha district are not accustomed to the working hours
followed in other districts. The traditional agriculture labourers in Alapuzha
85
work from 06.30 a.m. to 01.30 p.m. The reason is obvious. The district is
covered with rivers and backwaters. The water during the morning will be at
normal temperature and as the time passes the temperature rises. In other
words, the people in the region have to experience hot humid temperature
around noon. As a result, the labourers stop working after 01.30 p.m. Thus,
working hour for the agriculture labourer in Alapuzha district starts earlier and
stops earlier. The workers who are used to this timing find it difficult to adjust
with the timings adopted in other districts.
Table 5.13: Working hours
Number of Respondents Districts Working hours Palakkad Idukki Wayanad Alapuzha Total
8.00 am to 5.00 pm 109
(77.8) 134
(83.8) 151
(94.4) 155
(96.9) 549
(88.5)
8.30 am to 5.00 pm 14
(10.0) -
3 (1.9)
1 (0.6)
18 (2.9)
8.00 am to 4.30 pm - 1
(0.6) 1
(0.6) -
2 (.3)
8.30 am to 4.30 pm 17
(12.1) 20
(12.5) - -
37 (6.0)
8.00 am to 4.00 pm - 4
(2.5) 5
(3.1) -
9 (1.5)
9.00 am to 5.00 pm - 1
(0.6) -
4 (2.5)
5 (0.8)
Total 140
(100) 160
(100) 160
(100) 160
(100) 620
(100)
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent column percentage
Facilities at the worksite
Basic facilities are to be provided at the worksite. The facilities to be
provided as per the Act include medical aid, drinking water, shed and crèche if
there are more than 5 children below the age of six years.
The panchayats by and large have been able to provide facilities at the
worksite. The facilities provided as reported by majority of the respondents
include: drinking water (77.4%), first aid box (54%), shade (45%) and tools
(32.4%). Crèche facility was found to have been provided in a few worksites
of Wayanad and Alapuzha. Extra facilities extended at the worksite, as
reported by respondents include gloves (1%), tea and snacks (2.1%), and
arrangement for supply of food at the worksite (2.9%) etc., particularly in
Alapuzha district. (See Table 5.14).
86
Table 5.14: Facilities available at the work site
Districts
Facilities at the worksite
Palakkad N= 140
Idukki N=160
Wayanad N=160
Alapuzha N=160
Total N=620
Drinking water 102
(72.9) 111
(69.4) 143
(89.4) 124
(77.5) 480
(77.4)
Shed for dressing 58
(41.4) 53
(33.1) 90
(56.3) 76
(47.5) 277
(44.7)
Toilet (temporary) 41
(29.3) 19
(11.9) 16
(10.0) 3
(1.9) 79
(12.7)
First Aid box 85
(60.7) 61
(38.1) 112
(70.0) 87
(54.2) 355
(55.6)
Tools 25
(17.9) 90
(56.3) 29
(18.1) 57
(35.6) 201
(32.4)
Creche - - 3
(1.9) 2
(1.3) 5
(0.8)
Gloves - - - 6
(3.8) 6
(1.0)
Tea and Snacks - 1
(0.6) 5
(3.1) 8
(5.0) 14
(2.3)
Food available at worksite - - - 18
(11.3) 18
(2.9)
No Facilities 29 (20.7)
10 (6.3)
3 (1.9)
7 (4.4)
49 (7.9)
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent percentage to number of the respondents
Regarding the adequacy of worksite facilities, a little less than two-
thirds of the respondents reported that facilities are not adequate. District-wise
analysis shows that the worksite facilities were found to be lacking in Idukki as
reported by majority of the respondents (72.5%) followed by Alapuzha
(61.3%) and Palakakd (64.6%). (See Table 5.15)
Table 5.15: Adequacy of the worksite facilities
Number of Respondents Districts Response
Palakkad Idukki Wayanad Alapuzha Total
Adequate 50
(35.7) 44
(27.5) 79
(49.4) 54
(33.8) 227
(36.6)
Not Adequate 90
(64.3) 116
(72.5) 81
(50.6) 106
(66.3) 393
(63.4)
Total 140
(100) 160
(100) 160
(100) 160
(100) 620
(100)
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent column percentage
Of the 393 respondents who said that the facilities at the worksite are
inadequate, majority of them reported that facilities such as shade for
dressing and resting, tools, first aid box, toilet and drinking water should be
87
made available. Around one-third of them reported that tea and snacks can be
given at the worksite free of cost (See Table 5.16).
Table 5.16: Facilities required at the worksite
Districts Worksite facilities required
Palakkad N= 90
Idukki N=116
Wayanad N=81
Alapuzha N=106
Total N=393
Drinking water 15
(16.7) 28
(24.1) 9
(11.1) 8
(7.5) 60
(15.3)
Shed for dressing 44
(48.9) 70
(60.3) 24
(29.6) 34
(32.0) 172
(43.8)
Toilet 24
(26.7) 52
(48.2 ) 27
(33.3) 35
(33.0) 138
(35.1)
First Aid box 37
(41.1) 59
(50.9 ) 23
(28.3) 16
(15.1) 135
(34.4)
Tools 49
(54.4) 47
(40.5) 53
(65.4) 16
(15.1) 165
(41.9)
Creche 3
(3.3) 1
(1.9) 1
(1.2) 2
(1.9) 7
(1.8)
Gloves 3
(3.3) 3
(2.5) -
8 (7.5)
14 (3.6)
Tea and Snacks - 53
(45.7) 22
(27.1) 46
(43.4) 121
(30.8)
Vehicle - 16
(13.7) 8
(9.8) -
24 (6.1)
Food at the worksite - 5
(4.3) 13
(16.0) 23
(21.7) 41
(10.4)
Doctor/ nurse - - 1
(1.2) 23
(21.7) 24
(6.1)
Umbrella - - - 5
(4.7) 5
(1.3)
Shoes - - - 3
(2.8) 3
(0.8)
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent percentage to number of the respondents
Tools
NREGS as indicated earlier is labour intensive. Use of machinery is
prohibited. As a vast majority of the participants are landless agriculture
labourers, they may not possess the tools. Hence, it is essential that tools are
made available at all the worksites by the panchayats for those who do not
possess tools for work. Around two-fifth of the respondents reported that
panchayats provided tools; around 22 per cent said they bought their own
tools for work. One-third of them said tools were jointly arranged by workers,
panchayat and Kudumbashree.
District-wise analysis shows that the tools were mostly made available
by the panchayats in Palakakd district and Kudumbashree is reported to have
played a good role in providing tools in Alapuzha (See Table 5.17). It must be
88
noted that 44 respondents were found to have hired tools for work; of whom
majority (75%) are from Alapuzha.
Table 5.17: Who provided tools for the work in the worksite
Number of Respondents Districts
Who provided tools Palakkad Idukki Wayanad Alapuzha Total
Panchayat 98
(70.0) 49
(30.6) 45
(28.1) 56
(35.1) 248
(40.0)
Self 8
(5.7) 5
(3.1) 45
(28.1) 78
(48.8) 136
(21.9)
Kudumbasree 4
(2.86) -
1 (0.6)
23 (14.4)
28 (4.6)
Self, Panchayat and Kudumbasree
30 (21.4)
106 (66.2)
69 (43.1)
3 (1.8)
208 (33.5)
Total
140 (100)
160 (100)
160 (100)
160 (100)
620 (100)
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent column percentage
Problems faced at the worksite
Around 75 per cent of the respondents said that they did not face any
problems at the worksite. The rest did face some problems. Two important
problems faced at the worksite as reported are: i) tools are not good (67.7%);
and ii) too heavy tools to work (25.3%). There are few location specific
problems like snakebite at the worksites (8.9%) and difficulties in working
continuously in water bodies (12.0%) (See Table 5.18)
Women have reported certain specific problems during the focus group
discussion. They are: i) they are not able to strictly follow the time schedule
as they have responsibilities at home; ii) a few are not accustomed to hard
physical work; iii) tools are not women friendly; iv) toilets are not made
available at certain worksites; v) women above the age of 50 found it hard to
put up with the work under NREGS; and vi) they have also come across with
location specific problems. For instance, cleaning the weed-infested canals is
an important item of the works undertaken in Alapuzha district. The women
have to travel in boats to remove the weeds in the canals and load them in the
boat and deposit them on the banks of the canal. The women could not
balance themselves in the boat while performing all these activities.
89
Table 5.18: Problems faced at the worksite
Districts Worksite problems
Palakkad (N= 40)
Idukki (N=30)
Wayanad (N=33)
Alapuzha (N=55)
Total (N=158)
No need based work 2
(5.0) 1
(3.3) 3
(9.1) -
6 (3.8)
Using pickaxe/ lifting heavy stone (for women)
9 (22.5)
12 (40.0)
8 (24.2)
11 (20.0)
40 (25.3)
Lack of good tools/ Tools are not good
40 (100)
10 (33.3)
28 (84.8)
29 (52.7)
107 (67.7)
Hot weather condition 12
(30.0) 1
(1.3) 2
(6.0) 2
(3.6) 17
(10.8)
Non availability of First Aid facility
1 (2.5)
1 (1.3)
- - 2
(1.3)
Lack of co-operation from the land owners (road work)
- 6
(20.0) -
2 (3.6)
8 (5.0 )
Over work load - 1
(1.3) -
1 (1.8)
2 (1.3)
Injuries - - 2
(6.0) 4
(7.3) 6
(3.8)
Difficult in working continuously in water bodies
- - - 19
(34.5) 19
(12.0)
Snakes at the worksite - - - 14
(25.5) 14
(8.9)
Scarcity of boat - - - 2
(3.6) 2
(1.3)
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent percentage to number of the respondents
Payment of Wages
Payment of wage is a very significant component under the scheme.
The Act has specifically stated that i) every worker under the scheme is
entitled to minimum wage as fixed by the state government; ii) equal wages
should be paid to men and women; iii) wage should be paid on a weekly basis
either through bank or post office; and iv) wage rate should be published
permanently at every worksite. These conditions are stipulated to ensure
transparency, accountability and corruption free system.
Field observations revealed that muster rolls received from the
panchayat office are maintained at the worksite. The muster rolls provide
details on the job card number, the number of workers and the days worked.
The mates maintain the muster rolls. The mates are mostly women drawn
from Kudumbashree. They are selected through a participatory process. They
are trained well. The interaction with them revealed that they are all aware of
90
the salient features of the NREGA, entitlements of the NREGA workers,
worksite facilities to be provided and transparency safeguards to be adopted
at the worksite. They are trained in the maintenance of muster rolls and
measurement of work. Field observations in the worksites have clearly
indicated that the mates have performed duties such as mobilizing the
workforce, marking the worksite, allotting the works, maintaining the muster
rolls, ensuring the provision of worksite facilities, ensuring the quality of work
executed, general worksite supervision, dealing with emergencies, helping the
overseer/engineers etc. to the utmost satisfaction of the various stakeholders
of the scheme.
Wages are paid after measuring the work. Overseer/engineer
measures the quantity of work before and after the execution of the work.
They visit the worksites and measure the work usually after the completion of
the muster rolls. They do visit the worksites in between and give necessary
instructions at the worksite. The wages are distributed through the bank/post
office after the measurements are made.
Awareness about minimum wages
98.4 per cent of the respondents were aware of the minimum wage
fixed by the state government. All the respondents in Wayanad and Alapuzha
were aware of the minimum wage; a few respondents in Palakkad (9.3%) and
Idukki (2.5%) were not aware of the minimum wages.
The respondents were also aware of the mode of fixation of wage
under the scheme. A high level of awareness on the various aspects of the
scheme including the fixation of wages can be attributed to the involvement of
Kudumbashree units from the beginning of the scheme and high literacy rate
among the participants.
Wages earned under the scheme
The minimum wage earned under the scheme as reported by majority
of the respondents (86.3%) is Rs.125/-. Around 19 per cent of them said it
varied from Rs.100 to 124/-. District wise analysis shows that the minimum
wage earned was lower in Palakkad District when compared to other districts
(See Table 5.19).
91
Table 5.19: Wages earned under the scheme
Number of Respondents Districts Minimum wage earned under the scheme
Palakkad Idukki Wayanad Alapuzha Total
<100 22
(15.7) -
4 (2.5)
2 (1.3)
28 (4.5)
100-124 55
(39.3) 25
(15.6) 4
(2.5) 4
(2.5) 88
(14.2)
>125 63
(45.0) 135
(84.4) 152
(95.0) 154
(96.3) 504
(81.3)
Total 140
(100) 160
(100) 160
(100) 160
(100) 620
(100)
Average 106.04 123.35 123.55 123.88 119.59
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent column percentage
The maximum wage under the scheme as reported by the respondents
indicates that 99.4 per cent of them could get a wage of Rs.125 per day which
indicates that they are all assured of minimum wages prescribed by the state
government. (See Table 5.20)
Table 5.20: Maximum wage earned under the scheme
Number of Respondents Districts
Maximum wage earned under the scheme
Palakkad Idukki Wayanad Alapuzha Total
< 124 3
(2.1) - - -
3 (0.5)
125 136
(97.1) 160
(100) 160
(100) 160
(100) 616
(99.4)
> 126 1
(0.7) - - -
1 (0.2)
Total 140
(100) 160
(100) 160
(100) 160
(100) 620
(100)
Average minimum wage earned
121.4 124.18 123.44 124.99 123.51
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent column percentage
Mode of payment of wage
Wages were paid either thro’ bank or thro’ post offices to prevent
corruption. 89.8 per cent of the respondents reported that they got wages
through the bank. Rest of them got the wages through post offices. Payment
of wage through post office was practised in Alapuzha District (See Table
5.21)
92
Table 5.21: Mode of payment of wage
Number of Respondents Districts Mode Palakkad Idukki Wayanad Alapuzha Total
Through Bank
140 (100)
160 (100)
160 (100)
96 (60.0)
556 (89.6)
Through Post Office - - - 64
(40.0) 64
(10.3)
Total 140
(100) 160
(100) 160
(100) 160
(100) 620
(100)
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent column percentage
Around 95 per cent of the respondents reported that they did not face
any problem in withdrawing the cash form the bank. Rest did face problems
which were mostly related to initial reluctance on the part of the bank officials
to entertain NREGA accounts.
Time lag between date of completion of work and payment of wage
The wages should be paid on a weekly basis, and in many cases within
a fortnight of the date on which the work was done. Around 62 per cent of the
respondents reported that the wages were paid within a period of 15 days. It
took 16-30 days to get wage in the case of around one-fourth of the
respondents. A few respondents could get wage after a period of 60 days
only. District-wise analysis shows that around one-third of the respondents, in
Palakkad was able to get the wage after a period of one month. There were
incidents of delay beyond one month in other districts too. The average time
lag between date of completion of work and receipt of wage shows that
Wayanad has the lowest time lag of 12.57 days, followed by Alapuzha with
20.86 days. The average days for all the districts is 22.68 days (See Table
5.22).
Important reasons for the delay in payment of wages as reported by
the respondents and as learnt during the focus group discussions were; i) lack
of staff; ii) delay in providing muster rolls; iii) delay in measurement; iv) lack of
adequate monitoring by the Panchayat; and v) delay on the part of the bank.
93
Table 5.22: Time lag between date of completion of work and receipt of wages
Number of Respondents Districts Time lag in days
Palakkad Idukki Wayanad Alapuzha Total
< 15 20
(14.3) 115
(71.9) 140
(87.6) 107
(66.9) 382
(61.6)
16-30
67 (47.9)
26 (16.3)
16 (10.0)
36 (22.5)
145 (23.4)
31-45
8 (5.7)
6 (3.8)
4 (2.5)
8 (5.0)
26 (4.2)
46-60
34 (24.3)
13 (8.1)
- 7 (4.4)
54 (8.7)
> 60
11 (7.9)
- - 2 (1.3)
13 (2.1)
Total 140
(100) 160
(100) 160
(100) 160
(100) 620
(100)
Average 40.13 23.21 12.57 20.86 22.68
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent column percentage
All the respondents reported that they were able to get full wages as
per the muster rolls. They were all fully paid and there has been no incidence
of non-payment or under payment.
NREGA wage and market wage
A comparison between NREGA wage and wage prevailing in the
market has revealed that NREGA wages were much lower than the prevailing
wage rates in the case of men. The average difference for all the districts put
together worked out Rs.74/-. In other words, the wages for men was around
Rs.200/- in the market, whereas it was Rs.125/- under NREGS. The
difference was quite high in Alapuzha district, where men were able to get
double the NREGA wage in the market.
However, the NREGA wages are better than what it generally prevails
for the women in all the four districts. The difference was as high as Rs.38 in
Palakkad District, whereas NREGA wage was closer to market wage in Idukki
and Alapuzha districts (See Table 5.23).
94
Table 5.23: Difference between wages under NREGS and the prevailing wages for other than NREGS work
Number of Respondents Districts
Average wage in Rs.
Palakkad Idukki Wayanad Alapuzha Total
NREGS 125.25 125 125 125 125.06
Normal 163.21 197.41 170.56 259.69 198.83 Men
Difference - 37.96 - 72.41 -45.56 -134.69 -73.77
NREGS 124.54 125 124.09 125 124.66
Normal 86.69 123.75 110.88 118.38 110.67 Women
Difference +37.85 +1.25 +13.21 +6.62 +13.99
Source: NREGA in Kerala - HH Survey
Impact
NREGS has been in operation for the last four years. In Kerala the
scheme was introduced only in two districts viz., Wayanad and Palakkad in
2005-06 under Phase I. The scheme was extended in two more districts in
2006-07 under Phase II and subsequently in all the remaining 10 districts
under Phase III. The complete effects or impact of the scheme cannot be
gauged as the scheme is yet to fully take off with all its essential components.
However, this scheme generated certain immediate effects such as increase
in income, changes in the expenditure pattern, improvement in level of living,
purchase of assets etc. (See Box 5.2). We have attempted to assess the
impact as perceived by the respondents of the study. The variables
considered are: income, expenditure, savings, livestock, empowerment of
women, migration and benefits to households and panchayats.
On Income: One of the major purposes of the NREGS is to increase the
family income of the poor households in the rural areas. It is the direct benefit
expected of the NREGS. After the implementation of the scheme the average
family income in these districts is found to have increased by a minimum of
Rs. 1479/- in Palakkad to Rs.2601/- in Idukki District. In other two districts viz.,
Wayanad and Alapuzha the average increase in the family income was
Rs.1856/- and Rs.2093/- respectively.
95
Box 5.2: The multiplier effects of NREGA
Parijan, a member of the traditional orthodox Muslim family is around 40 years of age.
She was married to Abdul Rehman in 1987 when she was 18 years old. Life was quite
happier until her husband met with an accident and got paralyzed in1991. There was nobody
to support her at times of distress and she had to work as a servant maid and agricultural
laborer to run her family. She has two daughters and the family lives in a hut.
Parijan came to know about NREGA only in 2007 even though it was introduced in
the year 2006. She registered and started working under the scheme. She worked for 23 days
in 2007 – ’08 and 50 days in 2008 – ’09. She has already completed 38 days of work for the
current year and she hopes to hit the guaranteed 100 days before the end of the financial
year.
The wages she earned during the initial period was mainly spent on consumption
expenditure. Later she could save some money and with that she started a canteen within the
premises of panchayat. The canteen is run well and yields profit. She has now enough
revenue to run the family. Her aim is to see that her daughters are got married and settled.
She feels that NREGA has not only helped her to earn wages, but also enabled her to start a
micro-enterprise which has now become an important source of livelihood.
Table 5.24: Impact of NREGS on the family income
Number of Respondents Districts Increase in income in Rs.
Palakkad Idduki Wayanad Alapuzha Total
No change 65
(46.4) 19
(11.9) 23
(14.4) 9
(5.6) 116
(18.7)
< 2500 47
(33.6) 93
(58.1) 111
(69.4) 112
(70.0) 363
(58.5)
2500-5000 20
(14.3) 26
(16.3) 16
(10.0) 23
(14.4) 85
(13.7)
> 5000 8
(5.7) 22
(13.8) 10
(6.3) 16
(10.0) 56
(9.0)
Total 140
(100) 160
(100) 160
(100) 160
(100) 620
(100)
Average 1479 2601 1856 2093 2024
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent column percentage
District wise analysis shows that there has been a substantial change
in the family income on account of the NREGS in all the districts except the
Palakkad District. In Palakkad about 46 per cent of the people opined that the
scheme has hardly brought changes in the family income. Even among those
who reported change in the family income about 33.6 per cent reported that
only a marginal change is realized (Rs. >2500 per annum). The remaining 20
percent reported an increase of more than Rs.2500/- in their family income.
But in other three districts, about 85 to 95 per cent of the people reported to
96
have seen substantial increase in their family income. However, such
increase in the family income was less than Rs.2500/- in majority of the
cases. Those who reported to have marginal income of more than Rs.2500/-
constituted about one-fourth of the total respondents from these districts.
Thus, the change in the average family income in all these districts was
moderate. .
On Expenditure: Increase in family income should have resulted in more
family expenditure. The details on the family expenditure collected from the
respondents showed that about 40 per cent of them did not see any change
in the family expenditure whereas, about 47.3 per cent reported to have spent
more than what they were spending earlier to this intervention. The change in
the family expenditure ranged between less than Rs.2500/- and more than
Rs.5000/-. However, people who spend more than Rs.2500/- accounted for
12.8 percent in all the four districts.
Table 5.25: Impact of NREGS on the expenditure
Number of Respondents Districts The impact of NREGS on the expenditure in Rs.
Palakkad Idduki Wayanad Alapuzha Total
No change 84
(60.0) 36
(22.5) 60
(37.5) 68
(42.5) 248
(40.0)
< 2500
43 (30.7)
79 (49.4)
97 (60.6)
74 (46.3)
293 (47.3)
2500-5000
12 (8.6)
28 (17.5)
3 (1.9)
12 (7.5)
55 (8.9)
> 5000
1 (0.7)
17 (10.6)
- 6 (3.8)
24 (3.9)
Total 140
(100) 160
(100) 160
(100) 160
(100) 620
(100)
Average 763.21 2368.75 542.34 963.38 1172.20
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent column percentage
District wise analysis of the family expenditure revealed that there was
not much change in Palakkad District, where about 60 per cent reported no
change. While in Idukki district it was only 22.5 per cent who reported no
change in the average family expenditure. In other two districts viz., Wayanad
and Alapuzha the number of respondents who reported no change was
around 40 per cent. Thus, in Idukki District change was noticed in the family
97
expenditure to a great extent while in Palakkad district people did not spend
more on family expenses. There have been obvious changes in the family
expenses after the implementation of the scheme. Majority stated that their
family expenses too increased in proportion to the increase in family income.
Only in Idukki district more than one fourth of the respondents reported
increase in the family expenditure by more than Rs.2500/-. Thus, with the
introduction of the scheme the family expenditure and purchasing capacity of
rural households have improved in all the four districts.
A look at the spending pattern of the income earned by the
respondents from the NREGS reveals that they use it for a variety of
purposes. The items of expenses include expenses on household activities,
buying of food grains, meeting day-to-day expenses, spending on education
of the children, hospital expenses repayment of old debts, construction of
house and buying durable assets.
Table 5.26: Spending pattern of the wages earned under NREGS
Districts Particulars
Palakkad (N=140)
Idduki (N=160)
Wayanad (N=160)
Alapuzha (N=160)
Total (N=620)
Household activities 76
(54.3) 58
(36.3) 73
(45.6) 90
(56.3) 297
(47.9)
Education 39
(27.9) 60
(37.5) 58
(36.3)) 51
(31.9 ) 208
(33.5)
Buying assets 14
( 10.0) 11
(6.9) ) 14
(8.8) 10
( 6.3) 49
( 7.9)
Buying food grains 27
( 19.3)) 61
(38.1) 46
(28.8) 54
( 33.8) 188
(30.3)
Hospital expenses 17
(12.1 ) 50
(31.3) ) 52
(32.5) 21
( 13.1) 140
(22.6)
Payment of old debts 42
(30.0 ) 11
(6.9 ) 21
( 13.1) 8
(5.0 ) 82
(13.2)
Celebrations 4
(2.9) 2
( 1.3 ) 7
(4.3 ) 6
( 3.8) 24
(3.9)
Agricultural activities 2
(1.4)) - - -
2 (0.3)
Buying clothes 3
(2.1) -
20 (12.5)
4 (2.5)
27 (4.4)
Day-to-day expenses - 5
(3.1) 2
(1.2) 2
(1.3) 9
(1.5)
Construction of house - 2
(1.3) 3
(1.9) 10
(6.3) 15
(2.4)
Source: NREGA in Kerala - HH Survey
Figure in the parenthesis represents the percentage to the Total Respondents
From the overall analysis it is found that the income is spent by a
sizeable number of respondents for meeting the household expenses.
98
(47.9%), expenses on education of the children (33.5%) buying food grains
(30.3%) and for meeting medical expenses (22.6 %). The other expenses met
out of the additional income include repayment of old debts (13.2%) buying of
assets (7.9%) buying clothes (4.4%) celebrations (3.9%) construction of
house (2.4%) (See Box 5.3 and 5.4) and other day- to-day expenses (1.5%).
People opined that the introduction of the scheme improved the debt-servicing
capacity of the poor households and also helped in reducing the liabilities. It
can be concluded that the households spend the income mainly on household
expenses and on education and clothing of the children. The spending pattern
of the people from different districts hardly shows any differences except
redemption of prior debts (30%) in Palakkad District.
Box 5.3: Age Has Not Withered Away the Spirit to Work
O. Kunjamma (72 years) is a senior citizen of Nedumudi Panchayat of Alappey district. He has seven children; all of them happily settled. He lives with his youngest son. He is an active member of CPI (M). NREGS was introduced in the panchayat in 2009. Planning to do something productive, he joined NREGS. The work taken up in his ward under the scheme was removal of weeds from the Bhoothapandam lake. He actively participated in the work. He said he was quite happy because i) he could earn at this stage ii) could do some useful work in the village and iii) he could spend the wages earned for a productive purpose viz., construction of a house for his son.
Box 5.4: NREGS enabled to come out of the vicious cycle of poverty
The case of two sisters
Karthiyani and Vasanthi are two sisters born and brought up in Nandiyodu, a hamlet
(9th ward in Pattancherry) of Chittor block. They are the daughters of Kombi and Devu who
belongs to ST. They had an elder brother supporting them. He became chronically ill and
died. The entire family fell into the vicious cycle of poverty.
It is at this juncture they came to know about NREGS through Kudumbashri. Both of
them registered themselves under the scheme. They were active participants of NREGS.
After 2 years of work, they had a bank balance of Rs. 20000/- (Canara bank,
Meenakshipuram). They were mostly idle without much work before the launch of NREGA.
NREGS provides assured work with a minimum wage of Rs. 125/- per day. They have plans
to construct a new house through IAY (Indira Awas Yojana) with an additional contribution
from their own savings.
99
Table 5.27: Impact of the NEREGS on the Saving (Per annum)
Number of Respondents Districts
The impact of the NEREGS on the Saving in Rs.
Palakkad Idduki Wayanad Alapuzha Total
No Saving 84
(60.0) 100
(62.5) 91
(56.9) 69
(43.1) 344
(55.5)
< 1250 37
(26.4) 54
(33.8) 43
(26.9) 69
(43.1) 203
(32.7)
1250-2500 9
(6.4) 2
(1.3) 9
(5.6) 19
(11.9) 39
(6.3)
> 2500 10
(7.1) 4
(2.5) 17
(10.6) 3
(1.9) 34
(5.5)
Total 140
(100) 160
(100) 160
(100) 160
(100) 620
(100)
Average savings 754.07 236.56 715.97 567.98 562.66
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent column percentage
On Savings: The household savings is a function of the household income
and expenditure. In all the four districts increase in the family income was
reported to be moderate. The moderate income so earned on account of the
scheme was reported to have been spent by the families for meeting their
family expenses. As such, the extent of savings at the household level would
also be marginal if at all the families have propensity to save. The average
savings as reported by the respondents ranged from Rs. 236/- (in Idukki
district) to Rs.754/- in Palakkad district, while the overall average savings was
Rs.562/- . It is seen from the table that only 45 per cent of the households
have savings. 32 percent of the household save upto Rs.1250/- The rest
constituting about 12 per cent have savings ranging from Rs.1250 to Rs.2500.
District-wise analysis reveals that that there was no savings as
reported by majority of the respondents. They constituted 60 per cent in
Palakkad, 62.5 percent in Idukki, 56.9 per cent in Wayanad and 43.1 per cent
in Alapuzha. Thus, Alapuzha district has shown better results in this respect,
where majority has reported to have savings ranging from Rs. 1250 to Rs.
2500. In Idukki, people reported that the habit of saving has been picking-up
even among the weaker sections of the community. It should, however, be
noted that the extent of savings was less than Rs.1250 in majority of the
households in all the districts.
100
Table 5.28: Impact of NREGS on livestock
Number of Respondents Districts Livestock Palakkad Idduki Wayanad Alapuzha Total
No change 128 (91.4)
156 (97.5)
152 (95.0)
133 (83.1)
569 (91.8)
She buffalo - - 1 (0.6)
- 1 (0.2)
Cow 2 (1.4)
- 7 (4.4)
7 (4.4)
16 (2.6)
Goat 5 (3.6)
2 (1.3)
- 15 (9.4)
22 (3.5)
Poultry 5 (3.6)
2 (1.3)
- 5 (3.1)
12 (1.9)
Total 140 (100)
160 (100)
160 (100)
160 (100)
620 (100)
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent column percentage
On Livestock: There has been increase in the livestock population after the
implementation period in all the four districts. In Alapuzha District 16.9 per
cent reported an increase in the livestock population especially cow, goat and
poultry. 97.5 percent of the respondents in Idukki reported that there was not
much change in the livestock population. Similar is the case with Wayanad
where 95 per cent reported no change in the livestock. In the case of
Palakkad District about 8.6 per cent expressed that there is an increase in the
livestock particularly the number of cows, goats and poultry birds. Thus, the
NREGS is found to have enabled a few households to buy livestock and
adopt it as the secondary occupation for improving their economic condition. It
is understood from the FGD that livelihood opportunities have increased after
the introduction of the scheme. Some of them bought goat out of their wages.
This scheme is specially benefiting the senior citizens, who didn’t have any
other choice to lead their life.
On Empowerment of women: The scheme has its focus on poor and
marginalized sections of the community. It has sought to do away with
discriminating practices in payment of wages to women. The Act has
categorically offered equal wages to men and women. Further, the Act
emphasized the role of women in the scheme. Field evidences do indicate
that participation of women in the scheme is quite high in states like Kerala
and Tamil Nadu when compared to other states.
101
High participation of women is likely to empower them socially,
economically and politically. 60 percent of the respondents reported that the
women are socially empowered. They work as group in NREGA resulting in
close relationship and connectivity with panchayats and government officials.
They state earning enhances their status in the family. They also participate in
Grama Sabha meetings and meeting of the Social Audit Committee which
earns a status for them in the community. Women are consulted in meetings.
All these give them a sort of social empowerment. 41.4 percent of the
respondents said that the women are economically empowered for obvious
reasons. First, they outnumber the men at the worksite but earning equal
wages. Second, they supplement and complement the income earned by the
male members in the household. Third, the income earned under the scheme
especially for the women headed households offer economic independence.
Fourth, women enjoy freedom in spending the money they earned. Few
respondents reported that the women are politically empowered as they
participate in decision making process under the scheme. (See Table 5.29).
District-wise analysis shows that social empowerment was found to be
high in Alapuzha as reported by majority of the respondents (74%) followed
by Idukki with two-thirds of the respondents reporting. Majority of the
respondents in Wayanad (60%) reported economic empowerment followed by
Idukki with 44 percent.
Table 5.29: Impact of the NREGS on women empowerment
Number of Respondents Districts Women Empowerment
Palakkad N= 140
Idukki N=160
Wayanad N=160
Alapuzha N=160
Total N+620
No change 58
(41.4) 36
(22.5) 55
(34.3) 26
(16.2) 175
(28.2)
Socially 64
(45.7) 106
(66.2) 86
(53.8) 118
(73.8) 374
(60.3)
Economically 38
(27.1) 70
(43.7) 96
(60.0) 53
(33.1) 257
(41.4)
Politically 1
(0.7) 5
(3.1) 11
(6.9) 2
(1.2) 19
(3.0
Source: NREGA in Kerala - HH Survey
Figure in the parenthesis represents the percentage to the Total Respondents
102
Table 5.30: Migration to other areas in search of job before the introduction of the NREGS
Number of Respondents Districts Response Palakkad Idduki Wayanad Alapuzha Total
Not migrated 109
(77.8) 155
(96.9) 155
(96.9) 154
(96.3) 573
(92.4)
Migrated 31
(22.1) 5
(3.1) 5
(3.1) 6
(3.8) 47
(7.6)
Total 140
(100) 160
(100) 160
(100) 160
(100) 620
(100)
Place of Migration
Within in the District 15
(48.4) 3
(60.0) 4
(80.0) 2
(33.3) 24
(51.1)
Within the state 8
(25.7) 1
(20.0) - 2
(33.3) 11
(23.4)
Outside the State 8
(12.9) 1
(20.0) 1
(20.00) 2
(33.3) 12
(25.53)
Total 31
(100) 5
(100) 5
(100) 6
(100) 47
(100)
Duration of the migration
Below 2 months 20
(64.5) 1
(20.0) 1
(20.0) -
22 (46.8)
2 to 4 months 2
(6.5) -
2 (40.0)
2 (33.3)
6 (12.8)
4 to 6 months 6
(19.4) -
1 (20.0)
1 (16.7)
8 (17.0)
6 to 12 months 2
(6.5) 3
(60.0) 1
(20.0) -
6 (12.8)
above 12 months 1
(3.2) 1
(20.0) -
3 (50.0)
5 (10.6)
Total 31
(100) 5
(100) 5
(100) 6
(100) 47
(100)
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent column percentage
On migration: People of Kerala freely migrate to other states seeking
employment opportunities. Both educated and illiterate do so, if necessary.
Those who are qualified to work in organized sectors move to other countries
of the world. Whereas, those who are not lettered or who do not have
necessary qualification for getting a job in the organized sector normally move
to nearby places especially during the lean season. Table 5.30 shows that
only 7.6 percent of the total respondents reported to have migrated in search
of employment. The prevalence of migration was more in Palakkad district
than other districts. In Palakkad about 22 per cent of the respondents
reported migration for employment while, in other districts this remained
around three to four percent. Thus, except Palakkad district the extent of
migration was found to be meager.
103
Among those who have migrated, a vast majority had reported that
they migrated within the district (51.1%) and within the state (23.4%). The rest
who constituted 25.53 per cent reported to have migrated to other states.
Intra-district migration is found to be prevalent more in Wayanad (80%)
followed by Idukki (60%) and Palakkad (48.4%). In the case of Alapuzha, an
equal number of respondents (33.33%) reported prevalence of intra district,
inter district and inter state migration. (See Table 5.31)
In terms of periodicity of migration, around half of the total respondents
who reported to have migrated stated that they migrated for a period of less
than two months; 30 percent of the respondents migrated for a period of 2 to 4
months; the rest for a period ranging from six months to one year (12.8%) and
more than one year (10.6%). It can, therefore, be noted that there is no
uniform pattern among these districts in regard to the periodicity of migration.
Table 5.31: The level and intensity of migration after the introduction of NREGS
Number of Respondents Districts The level and intensity of migration after the introduction of NREGA
Palakkad Idduki Wayanad Alapuzha Total
No change
105 (75.0)
92 (57.5)
132 (82.5)
148 (92.5)
477 (76.9)
Decreased
24 (17.1)
68 (42.5)
26 (16.3)
10 (6.3)
128 (20.6)
Increased
10 (7.1)
- 2
(1.3) 1
(0.6) 13
(2.1)
Men migrated for better wage 1
(0.7) - - 1
(0.6) 2
(0.3)
Total 140 (100)
160 (100)
160 (100)
160 (100)
620 (100)
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent column percentage
The details on the level and intensity of migration after introduction of
NREGS as reported by the respondents are presented in Table 5.31. About
77 percent of the respondents stated that there was no change in the level of
migration, while 20.6 per cent reported decrease in the level and intensity of
migration which the respondents attributed to the implementation of the
scheme. Even through the rate of migration has come down after the
implementation of the scheme, migration of men, especially those below the
104
age of 35 remained unchanged as the young men with reasonable level of
secondary and higher secondary school education feel inferior in working
under these kinds of programmes which involve manual/physical work. Such
migration was due to the educated men seeking better employment avenue
elsewhere. The extent of decrease in the migration was reported more in
Idukki district (42.5%) followed by Palakkad (17.1 %) and Wayanad (16.3 %).
However, in Palakkad district about 10 per cent of the respondents reported
increase in the level of migration even after the NREGS intervention. This
trend in Palakkad district is attributed to the fact that men in these villages of
Palakkad district move to nearby cities of Tamil Nadu for better paid jobs.
Benefits of NREGS
Table 5.32: Benefits of NREGS to HH
Number of Respondents Districts
Benefits Palakkad
N=140 Idduki N=160
Wayanad N=160
Alapuzha N=160
Total N= 620
Guaranteed employment 38
(27.1) 3
(1.9) 7
4.3) 18
(11.2) 66
(10.6)
Paying of children’s education fee
15 (10.7)
25 (15.6)
19 (11.9)
13 (8.1)
72 (11.6)
Hospital expense 10
(7.1) 29
(15.6) 16
(10.0) 22
(13.8) 77
(12.4)
Increase in family status 17
(12.1) 13
(18.1) 16
(10.0 ) 12
(7.5) 58
(9.4)
House maintenance 5
(3.6) 10
(6.2) 7
(4.3) 6
(3.8) 28
(4.5)
Household expenses 39
(27.9) 58
(36.2) 28
(17.5 27
(16.9) 152
(24.5 )
Payment of debts 7
(5.0) 26
(16.2) 18
(11.2) 20
(12.5) 71
(11.4)
Family savings increased 13
(9.2) 5
(3.1) 14
(8.8) 21
(13.1) 53
(8.5)
Women have cash in hand 14
(10.0) 6
(3.8) 2
(1.3) -
22 (3.5)
Purchased assets 2
(1.4) 3
(1.9) 4
(2.5) -
9 (1.4)
Family income increased - 32
(20.0) 58
(36.2) 54
(33.8) 144
(23.2)
Poverty reduced - - 3
(1.9) 16
(10.0) 19
(3.06)
No change 11
(7.9) 4
(2.5) 8
(5.0) 3
(1.9) 26
(4.1)
Source: NREGA in Kerala - HH Survey
Figure in the parenthesis represents the percentage to the Total Respondents
The NREGS has brought in several benefits to rural households. The
major benefits as listed by the respondents, include: guaranteed employment;
sufficient income for meeting expenses on education, healthcare and
105
household expenses; improved family income leading to improvement in the
status of the family; house maintenance, repayment of debts, purchase of
assets etc. (See Box 5.5).
Except a small percentage of (4.1) respondents, everyone expressed
that the additional income from NREGA helped them in several ways. They
stated that the additional and guaranteed income from NREGA was very
much useful in meeting the household expenses to a great extent. The
increase in the expenses of the households was obviously made possible
through implementation of NREGA.
Box 5.5: NREGA assures stable income: The case of Subadra
Subadra aged 57 is a resident of Vadakarappathy Panchayat of Chittoor block in Palakkad district. Her husband was an agricultural labourer. He could not continue to work as he is ageing. Hence he looks after his small farm of 1 acre. The couple has a son, who is working as a driver and a daughter.
Subadra was also working as an agricultural labourer before the advent of NREGA in her area. She came to know of NREGA when the panchayat initiated some start-up activities to generate awareness among the people about the scheme. She and her daughter-in-law registered themselves under the scheme. They were not aware of the provisions of the scheme. However, in course of time, they came to know more about the scheme because of the efforts taken by the panchayat. They said that they could perceive the opportunities available in the scheme and decided to make use of the scheme to the maximum extent possible.
Both of them worked for 80 days at the rate of 40 days each in 2006-07. In the subsequent two years, they fully made use of the guaranteed days of employment. For the current year they have already worked for 30 days and they were sure of hitting the maximum of 100 days.
Subadra and her daughter-in-law were quite satisfied with the scheme. The major benefits for them from the scheme are: i) secured livelihood opportunity for a period of 100 days; ii) better wages; iii) improved income which enabled them to buy income generating assets like cow and consumer durable asset like TV; and iv) redemption of prior debts.
They said that they did not have any problem in registration, getting employment and wages. They were quite satisfied with the way in which the scheme is implemented in their panchayat.
From the overall responses of the people, it is understood, that it
increased the family income (23.2%) and improved the households expenses
(24.5%). Other benefits as reported by the people are guaranteed
employment (10.6%), money for meeting educational expenses (11.6%),
hospital expenses (12.4%) and improve the capacity to service the old debts
(11.4%). Increase in the family economic status is another important benefit
realized on account of the NREGA intervention. District wise analysis reveals
more or less similar pattern of responses. People expressed that the scheme
helped them in getting 100 days of assured employment and a minimum
106
annual wage of Rs.12,500/- per family. This guarantee was not there earlier
and it relieved them from the problem of searching for wage-labour during the
off-season.
Table 5.33: Benefits of the NREGS for the Panchayat
Districts Benefits
Palakkad N= 140
Idukki N=160
Wayanad N=160
Alapuzha N=160
Total N=620
Road maintained 24
(17.1) 96
(60.0) 114
(71.62) 69
(43.1) 303
(48.8)
Land leveled/ developed
2 (1.4)
3 (1.8)
47 (29.3)
12 (7.5)
64 (7.26)
Elephant trench created 7
(5.0) - 1
(0.58) 5
(3.1) 13
(2.0)
Canal/ Channel Renovated
23 (16.4)
5 (3.1)
31 (19.3)
65 (40.6)
124 (20.0)
Well Renovated 4
(2.8) 3
(1.8) 12
(7.5) 17
(10.6) 36
(5.8)
Pond Renovated 29
(20.2) 1
(0.6) 28
(17.5) 11
(6.8) 69
(11.1)
Pond Created 9
(6.2) -
15 (9.3)
10 (6.2)
34 (5.4)
Check dam Created 19
(13.2) - -
3 (1.8)
22 (3.5)
Trees Planted 1
(0.7) 3
(1.8) 1
(0.6) 9
(5.6) 14
(2.2)
Rain water Harvested 9
(6.2) 7
(4.3) 6
(3.8) 4
(2.5) 26
(4.1)
Retaining Wall Constructed
11 (7.7)
1 (0.6)
3 (1.9)
1 (0.6)
16 (2.5)
Improved water resources
5 (3.5)
3 (1.8)
15 (9.3)
4 (2.5)
27 (4.3)
More people get employed
- 26
(16.2) 8
(9.3) 35
(21.8) 69
(11.1)
Increase in the social participation of backward community
- 10
(6.2) 7
(4.3) 3
(1.8) 20
(3.2)
Senior citizen's are employed in the work
- 9
(5.6) 1
(0.6) - 10
(1.6)
Panchayat funds are saved
- 1
(0.6) 1
(0.6) - 2
(0.3)
Better yield for land owners
- 3
(1.8) 11
(6.9) 13
(8.1) 27
(4.3)
New road created - -
2 (1.2)
3 (1.8)
5 (0.8)
Source: NREGA in Kerala - HH Survey
Figure in the parenthesis represents the percentage to the Total Respondents
The immediate concern of the scheme is to guarantee employment and
certain level of income. The scheme has also kept in view sustainability of
income by insisting on such works that would have spin off effects. For
instance, works related to water and soil conservation are likely to result in
intensification of agriculture which in turn would lead to improved employment
opportunities in the long run. (See Box 5.6). It would also result in
107
maintenance of community assets in a state of efficiency. The panchayats
and the people therefore, gain from the scheme.
It is clear from the views of the majority of the respondents that the
Panchayats made use of the scheme for maintenance of road and renovation
of pond, rivers, canals and channels. The NREGA helped the Panchayats in
maintaining the public assets which are useful to the society. District-wise
analysis of the benefits accrued to the panchayats shows that benefits
accrued differ from district to district. This is due to different geographic nature
and the preference and priorities of the people in the Panchayat in the
selection of works for implementation under the scheme.
Box 5.6: Regenerating agriculture through NREGA
Vadakarapatty Grama Panchayath in Chittoor block of Palakkad district with a
geographical area of 5480 ha. is a rain-shadow region. The major sources of livelihood for
the households in the panchayat are agriculture and animal husbandry. The households
in this region did not face much problem as they had enough rain and ground water was
available at the depth of 12 feet. This situation slowly deteriorated due to
commercialization of agriculture, declining ground water and failure to network the existing
water bodies. This situation further worsened due to continuous drought in the area from
1986 – 1996. Public had to stand in long queue to get even drinking water supplied
through lorries. The situation improved with the implementation of the watershed
programme in the region.
The real turning point, however, in the opinion of the people is the launching of
NREGA in the panchayat in 2005-06. The scheme with the focus on soil and water
conservation helped in renovating many supply channels and the 12 ponds/tanks, which
were in a bad shape for many years. The impact of the work executed is quite visible.
Ground water level has increased; area under cultivation has gone up; cropping system
has changed; employment in agriculture has slightly improved; people are quite conscious
of importance of soil and water conservation. There is also marked improvement in the
participation of people in Grama Sabha meeting and the people demand schemes and
projects that would enhance their well being.
Box 5.7: A pond in a private land for a common purpose
Krishnasami, residing in Perumatty Panchayat of Chittoor block of Palakkad
district, owns 30 cents of land. Karupathurankkadu, which is situated in a valley. The land
could be converted into a water body. He agreed that the panchayat could make use of
the land for developing a pond. The subject was discussed in the grama sabha meeting
and it was decided to dig a pond.
A group of 44 workers worked for three months and completed the work of
digging a pond with a length of 60 feet and a width of 45 feet. Of the 44 workers, 40 were
women and four were men. The total estimate was Rs. 5 lakhs; but the work was
completed at a cost of 3.23 lakhs. The effect of the work was improved ground water in
the surrounding areas which led to improved agricultural activities.
108
The works taken up by the panchayats under NREGS helped the
Panchayat in several ways either directly or indirectly. The road works carried
out enabled the pancayats creating good connectivity with neighbouring
villages and urban centres. The land and water improvement activities were
very useful to the panchayats in recharging the ground water which leads to
improved irrigation facilities (See Box 5.7). The clearance of drainages helped
easy flow of water and in draining the rainwater and maintaining overall
sanitation in the villages.
Table 5.34: Changes that the Scheme has brought in the Panchayat
Districts Changes
Palakkad N= 140
Idukki N=160
Wayanad N=160
Alapuzha N=160
Total N=620
Soil erosion prevented 25
(17.9) 3
(1.9) 13
(8.1) 6
(3.7) 47
(7.5)
Ground water level increased
29 (20.7)
1 (0.6)
37 (23.1)
7 (4.3)
74 (11.9)
Community assets created 25
(17.8) 2
(1.2) 6
(3.7) 3
(1.9) 36
(5.8)
Check dam constructed 2
(1.4) 2
(1.2) 4
(2.5) 1
(0.6) 9
(1.4)
Good connectivity 22
(15.7) 95
(59.3) 80
(50.0) 73
(45.6) 270
(43.5)
Drainage canal cleaned 7
(5.0) 1
(0.6) 8
(5.0) 32
(20.0) 44
(7.0)
Easy flow of rain water 9
(6.4) 2
(1.2) 2
(1.2) 23
(14.3) 36
(5.8)
People's contact increased with Panchayat
6 (4.2)
2 (1.2)
4 (2.5)
11 (6.9)
23 (3.7)
Unemployment reduced 6
(4.2) 20
(12.5) 6
(3.7) 17
(10.6) 49
(7.9)
Agriculture Improved 16
(11.4) 1
(0.6) 45
(28.1) 33
(20.6) 95
(15.3)
Sanitation maintained 1
(0.7) 13
(8.1) 3
(1.9) 20
(12.5) 37
(5.9)
Social awareness increased
- 4
(2.5) 30
(18.7) 2
(1.2) 36
(5.8)
Women empowered - 4
(2.5) 5
(3.1) 18
(11.2) 27
(4.3)
Poverty reduced - - 10
(6.2) 7
(4.3) 17
(2.7)
Source: NREGA in Kerala - HH Survey
Figure in the parenthesis represents the percentage to the Total Respondents
Box 5.8: Prevention of men – animal conflict
Sholayur is a Panchayat in Attappady block of Palakkad district. This is a place where 3 rivers – Kodakarapallon, Bhavani and Siruvani meet. The area is elephant frequented region. The elephant cross the rivers and cause damage to the crops cultivated and disturbed human population. The Grama Sabha decided that a trench from Thekkimukkiyoor to Koodapetty would help solve the problem. The total estimate was Rs. 9 lakhs. The work was commenced on 5
th September 2007 and completed on 7
th August
2009. The total person days spent on the work is 2000.
109
This scheme by providing employment helped in reducing the
magnitude of unemployment in these villages. These changes in the
panchayats are not however uniform in the villages of different districts. We
could notice differences in respect of each item among the districts.
Change in Relationship
Sharing of work with other members is supposed to improve the social
relationship among the NREGS employees. 54.7 percent of the respondents
reported that there is appreciable change in the relationship among the
members involved in the NREGS works. The scheme has helped in bringing a
sense of oneness among the community members. It has also created
confidence among the people and willingness in them to take up any work for
the welfare of the Panchayat as a whole. The district wise analysis reveals
that NREGA has resulted improved relationship among the respondents in
Wayanad and Alapuzha as reported by majority of the respondents. The
improved relationship is a sign of emergence of social capital which could be
meaningfully used for developing other forms of capital such as human
capital, physical capital and financial capital.
Table 5.35: Change in the relationship among the Households after the introduction of NREGS
Number of Respondents Districts Response Palakkad Idduki Wayanad Alapuzha Total
No Change in relationship
77 (55.0)
110 (68.8)
48 (30.0)
46 (28.8)
281 (45.3)
Change in relationship
63 (45.0)
50 (31.3)
112 (70.0)
114 (71.3)
339 (54.7)
Total 140
(100) 160
(100) 160
(100) 160
(100) 620
(100)
Kind of Changes
Cooperation 14
(10.0) 33
(20.6) 73
(45.6) 72
(45.0) 192
(30.9)
Acceptance 11
(7.8) 9
(5.6) 15
(9.3) 16
(10.0) 51
(8.2)
Sharing the Households Expenses
48 (34.2)
- 10
(6.2) 15
(9.3) 89
(14.4)
Confidence in moving with the people
- - 17
(10.6) 17
(10.6) 34
(5.4)
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent column percentage
110
Social Audit
Social Audit is one of the salient features of NREGS. This is meant to
ensure transparency and create a corruption-free atmosphere in the
implementation of the programme. Social audit process along with appropriate
use of Right to Information (RTI) Act is expected to uphold the rights of the
citizenry in rural India. As per the guidelines of the NREGS each Panchayat
needs to have a Social Audit Team, which should carry out the audit in order
to verify if the programme is socially beneficial, corruption-free, and yields the
results it is expected to produce amidst the rural community.
• The social audit teams in all the study districts have been formed
based on the guidelines of the NREGS. It consisted of 12 members,
which included ward members, workers in NREGS, representatives
from SC/ST population, a representative from the neighbouring ward
etc.
• It was found that Social Audit has been conducted in all the four
districts under review viz., Palakkad, Idukki, Alapuzha, and Wayanad.
In Idukki and Alapuzha districts the number of social audit conducted
was found to be less, and upon probing, it was found that the
programme got initiated in these two districts, only a little later than the
other two districts (Palakkad and Wayanad) under study.
• The social audit team has pursued the records, in order to understand
the works undertaken, estimation, spill over details, SC/ST
participation, muster roll and job card related details. The social audit
team interacts with beneficiaries of NREGS in person and crosscheck
the details given in the muster roll such as attendance, wage received
for each work etc. The teams also visited the worksites and monitored
the work that are taken up and evaluated the works that are completed.
They check whether the work done tallies with the works given in
measurement book. The team verifies the vouchers and receipts if
material component is used in the work.
• The team interacts with Panchayat functionaries to understand the
problems faced, draw-backs if any they feel in the programme, and
111
their suggestions for overcoming the hitches with policy guidelines or
practical problems in implementation.
• The team, based on their observation, interaction and perusal of
records, prepares the social audit report. The report is then submitted
to authorities concerned and functionaries of the Panchayat for making
necessary changes, observation and suggestions. The final social
audit report after making necessary changes is presented in the Grama
sabha. The report as approved by the Grama sabha is compiled and
consolidated and submitted to the authorities concerned at the block
and District levels.
• The report is submitted to the Block Office. However, no significant
changes in the way the programme is implemented has been
suggested in the social audit report.
Grievance Redressal
In a massive rural employment generation scheme like NREGS,
grievances from some sections of the population or from workers themselves
are possible. The NREGS guidelines provides for grievance redressal
mechanism and a toll-free number to make complaints, in case the problems
are not solved locally. It was found that in all the four study districts
complaints have been raised. People have had complaints; and workers have
had complaints as well. All these problems have been discussed, sorted out
and settled either at the Panchayat level or through the intervention of the
block level officials. No complaint has taken shape out of proportion to be able
to handle beyond the block level. The toll-free number available for making
complaints about mismanagement of the programme or individual grievances
is not known to many of the respondents present in the FGDs. As a result,
none of them could use the toll-free number meant for grievance redressal.
Transparency and Accountability
The response about transparency and accountability under NREGS in
all the four districts under study is identical and unwavering. They reported
that there is cent per cent transparency and accountability under the scheme
112
because monitoring is done regularly by VMC, Social audit team, Overseer /
AE, and the Panchayat officials.
Difference between NREGS and SGRY
How do people perceive the difference between NREGS and the
earlier SGRY – both aimed at employment generation at local level - but at
different scales and with varying implications and methodologies? This is one
of the vital points that required probing. The responses of the participants of
the FGD has been consolidated and presented here (See Box 5.9).
Relevance of the Scheme to the Panchayat
In Palakkad, Idukki, and Wayanad districts the programme was
reported to be very much beneficial to the Panchayat in general, and for the
rural community who are dependent on wage employment in particular.
However, it was reported from some regions of Alapuzha district (such as
Box 5.9: NREGA vs SGRY
NREGA SGRY
This is an Act with a legal guarantee for employment, being given operational face through a scheme called NREGS.
This is one of the schemes like any other scheme of the government.
One gets 100 days of guaranteed employment in a year.
There is no legal guarantee about providing employment.
It is possible everyone of the population, if they are willing can get benefited.
The allocation might be sufficient to meet about 40% of the people, even if more people wanted.
Imperative it should be labour intensive Emphasis is given to labour intensive work.
No involvement of contractors Housing works under SGRY mostly given to contractors.
Gram Sabha and Panchayat decide which works should be undertaken, and which one should be given priority.
The officials decide based on instructions and funds they received.
The Panchayat can decide to create sustainable community assets.
Works taken as piece meal.
People directly involved in planning as Gram Sabha is involved.
Plan comes from the top.
40% material cost; 60% labour cost There is no specification about labour component.
Registration, ID, muster roll for making corruption-free administration.
No muster roll.
Bank transfer of wages considerably reduces leakage of the funds reaching the poor workers.
Payment made by cash, which gives room for misuse while distribution.
Women’s participation high Men’s participation high.
Social Audit Official Audit
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Kuttanad area) where the geographical condition was not conducive to take
works under NREGS. They demand revision in the guidelines of NREGS in
such a way that such regions, and people in such regions also benefit.
Convergence of the Scheme
In all the four districts under study, it was reported that convergence
with schemes / works of other departments take place. No district reported of
impossibility or difficulty in convergence. For example, (i) in Wayanad and
Palakkad districts convergences have taken place with departmental activities
of Irrigation, Agriculture, PWD (Highway), and Fisheries; (ii) in Alapuzha
convergence has taken place with Forestry Department; (iii) in Idukki district
convergences are reported of departments of Agriculture and Forestry.
Roles of various functionaries associated with NREGS
The successful implementation of the NREGS to great extent, depends
on active role of various agencies associated with the scheme. We could
identify the indispensable role of Grama Sabha, elected representatives
Kudumbashree and officials in-charge of implementing NREGS. We would
briefly state the role of each of the functionaries.
i) Grama Sabha: Grama Sabha is an important stakeholder of the project. It
recommends the works to be taken up under the project. It conducts social
audit on the implementation of the scheme. In addition, Grama Sabha is used
extensively as a forum for sharing information about the scheme. Hence, it is
essential on the part of the functionaries of the panchayat to ensure the
participation of the rural households in all the Grama Sabha meetings. The
focus group discussion with the various stakeholders revealed that
participation in Grama Sabha meeting has increased with the introduction of
NREGS in the state.
Survey findings reveal that around 93 per cent of the respondents
reported to have participated in the Gram Sabha meeting convened specially
to discuss the matters related to NREGS. District-wise analysis shows that the
participation of members is quite high in Alapuzha with 98.1 percent of the
respondents reported to have participated; followed by Wayanad with 96.3 per
cent; Palakkad with 92.9 per cent; and Idukki (86.3%). (See Table 5.36)
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Table 5.36: Participation in Grama Sabha Meeting
Number of Respondents Districts Response Palakkad Idukki Wayanad Alapuzha Total
Participated 130
(92.9) 138
(86.3) 154
(96.3) 157
(98.1) 579
(93.4)
Not Participated 10
(7.1) 22
(13.8) 6
(3.8) 3
(1.9) 41
(6.6)
Total 140
(100) 160
(100) 160
(100) 160
(100) 620
(100)
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent column percentage
Mere attendance in such meeting does not result in better outcome.
Participation needs to be active leading to better awareness on various issues
discussed in such meeting. Of the 579 members who participated in the
Grama Sabha meeting, 94 per cent of them were aware of the discussions on
various matters related to the operation of NREGA in their Panchayats.
The members who participated in the Gram Sabha meeting were found
to have discussed various aspects/issues related to NREGS. Prominent
among these aspects / issues include: Selection of worksite (44.5%), increase
in wages (23.7%), on-going work (19.7%), work timing (13.4%), work demand
(10.5%), facilities at the worksite (9.5%) and delay in payment (6.9%), (See
Table 5.37). District wise analysis shows that the respondents are found to
have discussed the rules and regulations of the scheme (Azhapuzha and
Wayanad). It can be seen from the table that the Grama Sabha has served as
a forum to discuss various issues related to the implementation of NREGA
scheme.
ii) Elected Representatives: One big way in which elected representatives
involve themselves is monitoring the execution of the work. This scheme has
made many ward members active because works are taken up in wards as
well. People who questioned the Panchayat Presidents have now started
questioning the ward members also, if a ward member was not active enough
to suggest works in their respective wards under the scheme.
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Table 5.37: Matters Discussed on NREGS in Grama Sabha
Districts Matters discussed
Palakkad N= 140
Idukki N=160
Wayanad N=160
Alapuzha N=160
Total N=620
Selection of worksite 67
(47.9) 55
(34.4) 66
(41.7) 88
(55.0) 76
(44.5)
Wage increment 15
(10.7) 70
(43.8) 38
(23.8) 24
(15.0) 147
(23.7)
Ongoing Work 37
( 26.4) 31
(19.4) 27
(16.9) 27
(16.9) 122
(19.7)
Work timing - 16
(10.0 ) 33
(20.6) 34
(21.3) 83
(13.4)
Issue of Job Card 3
(2.1) 1
(0.6) 2
(1.3) 2
(1.3) 8
(1.3)
Delay in Payment 21
(15.0) 7
(4.4) 8
( 5.0) 7
(4.4) 43
(6.9)
Medical assistance - 1
(0.6) -
1 (0.6)
2 (0.3)
Worksite measurement 6
(4.3) 6
(3.8) 1
(6.9) -
23 (3.7)
Work demand 10
( 7.1 ) 11
(6.9) 26
(16.3) 18
(11.3) 65
(10.5)
Muster roll maintenance 1
(0.7) 2
(1.3) -
1 (0.6)
4 (0.6)
Problems of working with ADS/CDS/MATE
3 ( 2.1)
- 13
(8.1) 4
(2.6) 20
(3.2)
Worksite Facilities 12
( 8.6) 19
(11.9) 24
(15.0) 4
(2.5) 59
(9.5)
Increase of Employment days in NREGS
10 (7.1)
6 (3.8)
11 (6.9)
4 (2.5)
31 (5.0)
Monitoring of work 2
( 1.4) 4
(2.5) 2
(1.3) 3
(1.3) 11
(1.6)
Purchase of new tools - 2
(1.3 ) 1
(0.6) -
3 (0.5)
Rules and regulations - 1
(0.6) 8
(5.0) 28
(17.5) 37
(6.0)
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent percentage to Number of Respondents
iii) Kudumbashree: Kudumbashree members are involved right from the
stage of registration of community members under NREGS for providing job
cards. They facilitate proper implementation of the scheme standing by the
Village Panchayats. They in fact, serve as a bridge between workers and the
Panchayat functionaries.
iv) NREGS Functionaries: NREGA Staff offer technical and non-technical
assistance, monitoring the worksite, assessment of the work, payment
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facilitation, documentation, supervising the activities undertaken, guiding the
Panchayats wherever needed. All of them act as facilitators in the whole
process for the Panchayats to be able to implement the scheme successfully.
Performance of NREGS as perceived by the Rural Households
We have so far discussed the functioning of the scheme in selected
districts of Kerala with reference to start-up activities, registration, issue of job-
cards, provision of employment and the utilization of the scheme by the rural
households. We have also made an attempt to ascertain the effects of the
scheme on the income, expenditure, savings and migration of the rural
households, benefits accrued to the individual households and to the
panchayat. The functioning of the scheme and the outcome from the scheme
largely depends on the way in which various activities designed under the
scheme are implemented. The beneficiaries are the best judges in judging the
execution of various activities. Hence, we have attempted here to assess the
performance of NREGS as perceived by the beneficiaries with reference to
select variables. They are:
o Process of registration
o Issue of job cards
o Selection of works
o Relevance and usefulness of the work to the village people
o Execution of the work
o Quality of the work executed
o Supervision at the worksite
o Support of government officials
o Facilities at the worksite
o Mode of distribution of wages
o Transparency
o Grievance redressal
o Participation of people
o Benefits occurred to the panchayat
o Benefits to the household
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Each of these variables was rated by the respondents on a five-point
scale ranging from very good to very poor. To quantify the rating, numerical
score is assigned to each of the items in the rating scale as given below:
Rating Score
Very good 5
Good 4
Satisfactory 3
Poor 2
Very poor 1
Based on the responses obtained from the respondents for each
variable under consideration, the average score in respect of each item
district-wise is arrived at and the results are presented in the Table 5.38.
The table indicates that the process of registration was done with
utmost care by the village Panchayat in almost all the four districts. The
aggregate average score is 4.34. Among the four districts the registration
process was carried out in a much better manner in Idukki (4.51) and
Wayanad (4.36) than other two districts. Focused Group Discussions with all
the stakeholders in the Grama Panchayats in all the districts revealed the best
practices adopted in this regard.
o Special Grama sabha meeting for NREGS was convened in each
panchayat and the participation of the people were ensured in all
the districts.
o Training sessions were arranged to make the Kudumbashree
members aware of the essential features of the scheme and they
were motivated to register under the scheme.
o Photographs were taken free of cost. For those residing closer to
the Panchayat office, it was arranged at the Panchayat office and
for those who live far away photographic sessions were arranged in
the respective hamlets.
o Ward level meetings were arranged in each ward under the
leadership of respective ward members.
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o Efforts were also taken to conduct special meetings in SC/ST
colonies to ensure their active participation in the whole
programme.
Table 5.38: Performance of NREGS as perceived by the beneficiaries (District wise Scoring)
Performance Scores Districts
Variables Palakkad Idduki Wayanad Alapuzha Total
Process of registration 4.25 4.51 4.36 4.23 4.34
The issuance of job cards 4.18 4.27 4.35 4.17 4.24
The Selection of Works 3.88 4.46 4.03 3.75 4.03
Relevance and usefulness of the work to the village/people
4.06 4.31 3.93 3.95 4.06
The Execution of Works 3.86 4.21 4.01 3.74 3.96
Quality of the work executed 3.79 4.16 3.96 3.91 3.96
Supervision at the worksite 4.14 4.44 3.93 4.24 4.19
Support of govt. officials 3.81 4.26 4.25 4.29 4.16
Facilities at the worksite 3.44 3.19 3.63 3.81 3.52
Mode of the distribution of wages
3.33 3.91 3.79 3.79 3.72
Transparency 3.78 3.82 3.96 3.59 3.79
Grievance redressal 3.63 3.82 3.75 3.48 3.67
Participation of people 3.99 4.51 4.19 4.34 4.26
Benefits accrued to the Panchayat
3.88 4.43 4.29 4.33 4.24
Benefits to the household 3.72 4.69 4.26 4.43 4.29
Source: NREGA in Kerala - HH Survey
Figures in the parenthesis represent column percentage
With regard to the issue of job-cards, the respondents rated the
performance as very good in all the four districts. The average rating score
ranged between 4.17 and 4.35. This shows that the registration and issue of
job-cards were done to the satisfaction of the primary stakeholders of the
programme.
The selection of works under the scheme by various panchayats has
been rated as very good – the average score being 4.03. District-wise
analysis shows that the respondents in Idukki were found to have rated highly
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the selection of work, compared to other districts. Focused Group Discussions
with the stakeholders in all Grama Panchayats revealed that works to be
taken up were decided by the people in the Grama sabha meeting. Every item
of work was decided based on the consensus arrived at in the meeting.
Regarding relevance and usefulness of the works to the people and to
the village, the respondents rated it as very good. District-wise analysis shows
that respondents in Idukki District are found to have given high rating for this
variable when compared to other districts. It means functionaries in-charge of
NREGS selected only those works which are relevant and useful to the
people.
The execution of work and the quality of work executed has been rated
as ‘good’ in general - the score being 3.96. District-wise analysis indicates
that respondents in Idukki have given a higher score and rating as very good.
The FGDs across the panchayats support these findings. The workers are
quite conscious of the fact that they need to work hard to earn minimum
wages assured under the Act. Hence, they sincerely worked which inturn
resulted in creation of productive assets. The quality of such assets created
has been rated only as ‘good’ which means there is room for improvement.
Supervision at the worksite was, by and large, rated as ‘very good’ by
the respondents in all districts expect the Wayanad district where it was rated
as ‘good’. The FGDs revealed that the scheme has evolved a good system
of supervision at the worksite. The salient features of the system are stated:
o The advisory committee is responsible for: i) screening the
proposals and giving necessary suggestions regarding the work; ii)
purchasing of necessary materials to carry out the work; iii) solving
the problems if any, in the work site; iv) monitoring the ongoing
works; v) redressing the grievances of the workers; and vi) guiding
them to work appropriately.
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o There has been constant monitoring and support from the block
level functionaries. District level functionaries have also visited the
worksites. District, state and central level functionaries have made
visits to the worksites in panchayats in all the four districts.
o Vigilance and Monitoring committee acts as an effective mechanism
to keep track of the works under NREGS. Vigilance and Monitoring
committee - consisting of a ward member, farmers, women
representatives, social worker, representatives of SC/ST and a
retired teacher - play an effective role in supervising the work.
Regarding the facilities at the worksite, the respondents from all the
four districts rated as ‘good’. However, the degree varied, in Idukki and
Palakkad, a sizeable percentage of the people stated that they are satisfied
but still there is scope for improvement in this regard. People in two other
districts felt that it is good but it can be improved keeping the welfare of the
people engaged in NREGS work. The focus group discussion revealed that
shed for dressing, drinking water, toilets, first aid box with necessary
medicines and tools are available at the worksites in all the four districts. In
Alapuzha rain caps and gloves were provided. In some worksites, tea was
served.
Regarding distribution of wages, respondents rated it as ‘good’ in
almost all the districts - the average score being 3.72. It is understood from
the FGD that wages were paid only through bank accounts. In some places
the ADS members who are appointed as mates help the workers in accessing
the money. Incidence of delay in getting wages was reported. The reason as
attributed was delay in processing muster rolls.
Support and guidance of the government officials, especially from BDO
and DPAU is quite essential for the smooth implementation of the scheme.
The respondents rated the support from officials as very good – the average
score being 4.16. District-wise analysis indicates more or less similar ratings
except Palakkad.
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Transparency is another important factor which brings quality to the
implementation of activities by avoiding misutilization and misappropriation of
funds under the scheme. Respondents have given a score of 3.76 for
transparency-rating is good. The responses at the FGD about transparency
and accountability under NREGS in all the four districts under study were
identical and unwavering. They reported that there have been cent percent
transparency and accountability under the scheme.
Grievance redressal is yet another aspect which assures smooth
implementation of the scheme. Grievances arise in respect of timing, the
quantum of work done, work turn out of the other members of the group and
payment of wages. Timely redressal is important to keep the programme
going as envisioned. It was found that in all the four study districts complaints
have been registered. All the grievances have been addressed, sorted out
and settled either at the Panchayat level or through the intervention of the
block level officials. No complaint has taken the shape that could not be
handled locally. The performance of the scheme with reference to grievance
redressal has been rated as ‘good’ – average score being 3.67. District-wise
analysis indicates more or less the similar rating.
With regard to benefits accrued to the Panchayats and to the people,
the respondents rated the performance of the NREGA as “very good” except
in Palakkad indicating multiple benefits accrued to the individual and to the
panchayats.
Conclusion
The National Rural Employment Guarantee Scheme is being
implemented in all the 14 districts of Kerala. The scheme has been slowly
and surely taking deeper roots in Kerala with the active participation of a
strong local government having time tested experience in local level planning
and development. The start-up activities initiated at different levels have
helped in launching the scheme smoothly. The level of awareness among the
households about the scheme, its components and its salient features is quite
high, which can be mainly attributed to the efforts taken by functionaries at
different levels to take the scheme to every nook and corner of rural areas.
Though there was some initial inertia in registration, the process of
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registration picked up later, due to special efforts made by the panchayats
and Kudumbasree. All the households registered under the scheme received
the job cards free of cost. There has been delay in issuing job cards due to
lack of staff and internet facilities and non-production of ration cards by the
workers.
The works under the scheme have been selected in special Gram
Sabha meetings convened at the ward level. Works selected are prioritized
based on the felt needs of the public. The functionaries of the Panchayat and
ADS/CDS create an enabling environment for the workers to demand work.
Around 95 per cent of the respondents sought the work. Of them around
three-fifths received dated receipt. Majority of the respondents were able to
get the employment within the stipulated period of 15 days. The average
number of days employed has registered an increasing trend in all the districts
though there are variations among the districts. SC/ST households have
been able to make use of the scheme better. They have high average number
of days employed when compared to others. 14 per cent of the total
households were employed for 100 days. Wayanad leads with 30 per cent of
the households employed for 100 days.
Majority of the respondents were found to have involved in road works
followed by flood control and protection, irrigation canals, land development
and renovation of traditional water bodies. A vast majority of the workers
were able to get work within a radius of 3 km from their residence. Working
hours vary across the districts. The NREGS functionaries have tried their level
best to provide the facilities at the worksite as per the provisions of the Act.
However, majority of the workers felt the facilities were inadequate.
Men and women were able to get the minimum wage prescribed by the
state government. Wages are distributed thro’ banks/post offices. Majority of
the respondents were able to get wages within a period of 15 days. There are
incidents of delay beyond one month. Women earned better wages under
NREGS when compared to wage rates prevailed locally. Wages earned by
men under NREGA are much lower when compared to prevailing wages. The
scheme has discernible impact on the income, expenditure, savings and
migration of the rural households. It has empowered the women in social,
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economic and political fronts. The scheme has also yielded many benefits to
the individual households and panchayats. The functionaries have ensured
that essential components of the scheme such as social audit, grievance
redressal, transparency and accountability are grounded and practiced. The
performance of the scheme as perceived by the rural households in selected
district is found to be ‘very good’, indicating the good work done by
functionaries of the scheme at different levels.
* * * * *
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Chapter - 6
Summary of Findings and Inferences
Introduction
The National Rural Employment Guarantee Scheme, the first ever
scheme that guarantee wage employment at an unprecedented scale was
introduced through an Act known as “National Rural Employment Guarantee
Act” notified on September 07, 2005. Implemented in a phased manner, the
programme was launched in 200 districts in February 2006, 130 more districts
in 2007-08 and in 285 districts in April 2008. The budget outlay for the
scheme was Rs.30,000/- crores in 2008-09. Inspite of certain problems and
shortcomings in the implementations of the scheme, the scheme has yielded
discernible benefits to the rural households, which include guaranteed
employment, assured income, equal wages to women, ensuring minimum
wages prescribed, and security of access to livelihood opportunities.
Purpose and objectives of the study
The scheme was introduced in two districts of Kerala in 2006. It was
subsequently launched in the remaining 12 districts. Almost four years have
elapsed since the inception of the scheme. How does the scheme performed
with reference to activities envisaged under the scheme? What are the output
and outcome of the scheme? What are the changes that the scheme has
brought in the lives of the people? What are the problems in implementing the
scheme? These are some of the pertinent questions and prominent issues
which the study attempts to address.
The primary objective of the study is to analyse the functioning of
NREGS encompassing all its essential aspects. The specific objectives are to:
i) analyse the extent to which the scheme has guaranteed employment and
livelihood to different sections of rural households; ii) assess the quality of
assets created and their likely impact on agrarian economy; iii) ascertain the
impact of the scheme on the socio-economic conditions of the people; iv)
asses the limitations and constraint faced by the functionaries in implementing
125
the scheme; and v) identify the problems faced by the various participants in
the scheme.
Methods
The study employed a mix of methods to address the objectives laid
down. A comprehensive household survey using pre-tested interview
schedule was conducted among the rural households. Qualitative methods
such as focus group discussion, case study and interview with key informants
were used to supplement and complement the data and information collected
through survey.
Sampling
Multi-stage sampling technique was used to select the sample for the
study. Four districts viz., Palakkad, Wayanad, Idukki and Alapuzha were
chosen based on extensive discussion with the officials at the State level. The
criteria followed to select the districts were: i) geographical location; ii) period
of implementation; and iii) performance of the district. Two blocks were
chosen from each panchayat. The criteria adopted were: i) performance of the
block; ii) concentration of SC/ST households; and iii) concentration of
agricultural labourers. From each block, four panchayats were selected,
(except one where there are only three panchayats). From each panchayat,
20 respondents (beneficiaries) were chosen at random. The sample for the
study includes four districts, eight blocks, 31 panchayats and 620
beneficiaries.
Profile of Kerala State and selected districts
Kerala is a small State constituting 1.18 percent of total landmass of
the country. The State has three distinct regions viz., eastern high lands,
central midlands and western coastal lands. The average annual rainfall is
3107 mm. Kerala is endowed with rich natural resources and is known as
‘Gods own country’. The State has 14 districts, 63 taluks and 999 panchayats.
The State has a population of 3.18 crores - the density of population being
819 people per sq.km. Around three-fourths of the population live in rural
areas. Tribals constitute 1.84 percent of the total population. Their
concentration could be found in Wayanad, Palakkad and Idukki. The
126
proportion of people in working age group is 63.4 percent. The state has the
highest literacy rate, the lowest IMR and MMR and the highest life expectancy
in the country. The poverty ratio is low with 15 percent. A good proportion of
its population is confined to agriculture and agro-based industries. More than
half of the labour force of the age group of 15-29 is unemployed.
Palakkad is one of the largest districts in Kerala. It has 5 Taluks, 90
panchayats with 144 villages. Population density of the district is 584 persons
per sq. km. It has a sex ratio of 1066. Literacy level is quite high with 84.35
percent. It is one of the main rice producing regions in Kerala. It has fairly well
developed industrial sector with 1975 factories. The worker participation rate
is 36.11 percent. The per capita income is Rs.18,031/-. BPL household
constitutes 52.13 percent of the households in the District.
Wayanad, known as ‘Green Paradise’, has a rich forest cover. It has
three taluks, 25 panchayats with 48 villages. The density of population is 369
persons per sq. km., which is much lower than the State average. Wayanad
has the highest concentration of tribals, constituting 17.1 percent of the total
population of the district. The worker participation rate is 39.53 percent. The
per capita income is Rs.34,123/-. The BPL households account for 49.87
percent of the total households.
Idukki, marked by undulating hills and valleys, is the second largest
district of Kerala. The district has four taluks, 51 panchayats with 64 villages.
It has the least population density of 259 persons per sq. km. among the 14
districts of Kerala. It has a high concentration of ST households. Many of the
ST population are working as agricultural labour in tea and cardamom
estates. Worker participation rate is 39.71 percent. Poverty ratio is 15 percent.
The recent agriculture crisis has resulted in increased risk of more households
falling into poverty.
Alapuzha, district lies in the eastern coastal plains of the State. The
district has 6 taluks having 75 panchayats with 91 villages. The density of
population is the highest in the state with 1489 persons per sq. km. The SC
population constitutes 9.45 percent of the total population. The district is
densely covered with waterways. The economy of the district primarily
127
depends on agriculture and fisheries. More than 20 percent of the total area is
water logged. It is a backward district with low per capita income. The worker
participation rate is 34.30 percent.
Socio-economic profile of the respondents
The sample households numbering 620 has a total population of 2592
with an average size of family of 4.18. The female population constitutes
50.42 per cent indicating slightly high sex ratio. Two-third of population among
the sample population is in the productive age group of 19-60 years. 4.5 per
cent of the population is disabled.
Around 30 per cent of the sample households belong to SC/ST; SC
alone accounts for 12 per cent; and the rest are from other communities.
The literacy rate is around 92 per cent. The sample households in
Alapuzha have the highest literacy with 99 per cent followed by Wayanad with
94 per cent.
Around 90 percent of the sample households have own houses.
Majority of them (79%) live in asbestos / tin / tiled roof houses. Around 10 per
cent live in IAY houses. Around four-fifth of the houses are electrified. 83 per
cent have access to safe drinking water and have toilet facilities.
The working population constitutes 64 per cent of the total population.
The main source of livelihood is agriculture labour (31.2%) followed by
NREGS (16.5%) and farming (11.4%). NREGS as the main source of
livelihood is quite high (29%) in Wayanad when compared to other districts.
NREGS has emerged as the major subsidiary occupation for two-thirds of the
working population.
Around two-fifth of the households possess some kind of livestock. The
human-animal population ratio is very low (1:01) and it is reported to be
improving after the introduction of NREGS.
Around 20 per cent of the households do not own any household
assets. 50 pre cent own cellphone and television; one-third of the sample
households have LPG connection.
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Around one-third of the sample households have an annual income of
less than Rs.24,000/-, indicating prevalence of poverty. The incidence of
poverty in terms of income was high in Alapuzha followed by Palakkad, Idukki
and Wayanad. The expenditure pattern reveals that a large amount was spent
on food followed by education, clothing, medical expenses and servicing of
debts.
The main sources of borrowing for the sample households are SHGs
and formal institutional sources such as cooperatives and commercial banks.
Money lenders are found to be marginalized. Households have borrowed for
investment and consumption purposes at a normal rate of interest.
The incidence of migration could be observed in all the districts; but it
was comparatively high in Palakkad. The main reasons are lack of
employment during the off-season, education of children; and better wages.
To sum up, the sample households hail from poor to moderate socio-
economic background
Performance of NREGS
With more than a decade long experience in local planning and
development, the state of Kerala has been in a unique position of taking the
full responsibility of the implementation of NREGS. The government has
consciously made use of the Scheme not only to provide secured livelihood
opportunities to the rural poor but also to strengthen the resource
regeneration in forest areas, river basins and watershed areas as the state
has very little public lands.
Implemented in three phases, the scheme is now in operation in all the
fourteen districts. Number of households registered under the scheme
recorded seven-fold increase over a period of four years. The percentage of
households employed has shot up from 11.3 lakh to 43 lakh – roughly around
four fold increase. Person-days employed witnessed a fifteen fold increase
from 11.30 lakh in 2006-07 to 155.87 lakh in 2008-09. Of the total persons-
days, 80 percent was constituted by women person-days, indicating high
participation of women in the scheme. The scheme has been picking up
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slowly, steadily and surely in the State of Kerala though there were some
initial apprehensions about the feasibility of the scheme.
Start-up activities and awareness about the scheme
The government initiated several start-up activities to spread the salient
features of the Act and the Scheme among the public. The core activities are:
i) training the various functionaries of the scheme at different levels,
ii) organizing meeting among the stakeholders in different settings to ensure
that the “last are put first” under the scheme, iii) organizing exclusive Gram
Sabha meeting on NREGS, iv) involving various types of community based
organizations and formal institutions like co-operatives, v) employing a wide
spectrum of audio-visual methods and techniques to popularize and
propagate the essential elements of the scheme.
Panchayats, SHGs, friends and relatives and neighbours are found to
be the key sources of awareness – ofcourse the government playing the role
of a facilitator behind the curtain. Other main sources of awareness include
print and electronic media. A very high level of awareness could be noticed
among the sample households about the essential features of the Act and the
Scheme such as: 100 days of guaranteed employment, equal wages for men
and women, minimum wage rate, payment within a fortnight, role of Gram
Sabha, worksite facilities and medical assistances at the worksite and so on.
Registration and issue of job cards
Every household should get registered with the panchayat to get
employment under the scheme. Measures taken to get the people registered
are: i) distribution of applications for registration at the doorsteps of
beneficiaries; ii) constitution of special team to quicken the process of
registration among the tribals; and iii) convening ward level meeting and
special meeting in SC/ST colonies.
The respondents were found to have registered under the scheme in
different spells. There were certain initial hurdles in registration. They are: i)
the nature and type of work undertaken under the scheme was a restricting
factor for some; ii) lack of awareness in some villages; and iii) better off
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households who would sustain without the employment assured under this
scheme did not come forward.
All the households registered under the scheme were issued job cards
free of cost. Around 50 per cent of the sample respondents were able to get
the job card within a period of 15 days. It took more than 15 days in the case
of remaining respondents indicating the delay in issuing of job cards. The
main reasons for the delay are: i) failure on the part of the households to
provide the required documents; ii) lack of adequate staff and internet facilities
with the panchayats; and iii) scattered location of houses resulting in poor
communication in certain parts of the districts.
Job cards are computerized. The process of issuing job cards has
been made easy. No fee is found to have been charged for job cards. The job
cards are with the workers. They are insisted to bring the job cards to the
worksite
Identification of Works
The works to be taken-up under the scheme in each panchayat have
been discussed and decided in Gram Sabha meetings. Ward-wise meeting
convened by the panchayat has greatly helped in incorporating the ‘voice’ of
the people in selecting the works. Area Development Society was found to
have played an important role in facilitating the people and panchayats in the
selection of works. The works identified are prioritized by the panchayat.
Priority differs from district to district as each district is found to distinctively
differ in geographic conditions.
The panchayats do come across certain problems in identifying the
works. Prominent among them include: i) boundary dispute in the selected
worksites; ii) suggestion of works by the people, which do not fall under the
purview of the Act; and iii) inability of the panchayats to strictly adhere to the
guidelines as the works could not be identified as per the provisions of the
Act.
Demand for employment
All the households registered under the scheme did not participate.
There are inter-district variations. For instance, in Idukki, 50 per cent of the
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registered households participated while in Palakkad 55 per cent of the
registered workers participated in NREGS. However, of the 620 sample
respondents of the study, 95 per cent reported they got employment under the
scheme. Whenever registered households demanded employment, they
should be given a dated receipt. 57 per cent of the sample respondents got
the dated receipt. District-wise analysis shows that majority of the
respondents got dated receipts in Alapuzha, while in Idukki, less than 25
percent of the respondents got it.
Each job seeker should be given job within 15 days from the date of
receipt of application. Majority of respondents (71.2%) got job within the
prescribed period. Wayand leads among the districts with average time lag of
12 days followed by Idukki with 21 days. One-third of the respondents
reported to have experienced delay. Of them four per cent got unemployment
allowances.
Execution of Work
The work under the scheme have been executed through a well
defined process which include; i) identification of work, ii) preparation of
people’s estimates by engineers, iii) project initiation meeting, iv) citizen
information board, v) provision of implements, vi) arrangement of worksite
facilities, vii) maintenance of muster rolls, viii) maintenance of worksite diary
by mate, ix) implementation of work, and x) documenting the work executed.
The various steps in the process have been meticulously followed in all the
selected panchayats.
Average number of days employed
The average number of days employed per households has increased
from 23.6 days in 2006-07 to 61.5 days in 2008-09 in Wayanad. In Palakkad
the average number of days employed per household has increased from
12.8 days to 53.2 days during the same period. Both these districts, where the
scheme was introduced first, performed relatively well. The progress has been
slow in Alapuzha and Idukki.
The SC/ST households were found to have made use of the scheme,
better when compared to other communities. The average number of days
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employed per SC/ST households was higher than the other communities in
Wayanad, Idukki and Alapuzha.
The number of households employed for 100 days in a year has
registered an upward trend. Wayand leads with 30 per cent of the households
employed for 100 days, followed by Palakkad with 20 per cent in 2008-09.
The other two districts are late starters. Their progress is slow in this regard.
Participation in various items of work
The major items of work in which the respondents found to have
participated include, road connectivity (56.4%), flood control and protection
work (35.5%), irrigation canals (26.6%), renovation of traditional water bodies
(22.6%) and water conservation and water harvesting (19.4%). However, inter
district variations are observed in this regard. In Idukki and Wayand, majority
of the respondents are found to have participated in the works related to road
connectivity. In Alapuzha majority have participated in flood control and
protection work and cleaning of irrigation canals. In Palakkad, the participation
was found to be high in renovation of traditional water bodies.
The distance between the place of resident and worksite as reported
by majority of the respondents was less than 1 km. It hardly exceeds the
permissible limit of 5 km. A vast majority of the respondents (95%) have been
able to reach the worksite by walk. Very few used other modes of transport.
The work as reported by a vast majority of respondents commences at
8 am and closes at 5.00 pm with a short lunch break. The timing is not
suitable to households in Alapuzha. They are accustomed to starting and
closing the work early (6.30 am to 1.30 pm) due to hot weather during the
afternoon.
The basic facilities as stipulated in Act are made available in the
worksite. However workers are not satisfied with the facilities. In certain
districts viz., Idukki, Alapuzha and Palakkad, the facilities required by the
workers at the worksite include, shade for dressing and resting, first-aid box,
supply of tools, toilet facilities and drinking water. Around one-third of them
suggested tea and snacks can be provided at the worksite free of cost.
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Majority of the respondents (75%) did not face any problem at the
worksite. The rest did face some problems which include: i) tools are not
good, ii) snakebite at the worksite and iii) difficulty in continuously working in
water bodies. Women have come across certain specific problems. They are:
i) They are not able to strictly follow time schedule; ii) a few are not
accustomed to physical work; iii) tools are too heavy to carry; and iv) toilet
facilities are not made available in certain worksites.
Payment of wages
Muster rolls are maintained by the mates at the worksite. The mates,
who are drawn from Kudumbasree are well trained in all the essential aspects
of NREGA. Wages are paid after measuring the work. Overseer/engineer
assisted by mates measure the quality of work. They visit the worksite and
measure the work usually after completion of the muster rolls. The wages are
distributed through banks/post offices.
The NREGA workers are to be paid minimum wage prescribed under
the Act. 98.4 per cent of the respondents were aware of the minimum wage
fixed by the state government. District-wise analysis indicates that all the
respondents in Wayand and Alapuzha are aware of the minimum wage. The
respondents are also aware of the mode of fixation of wage under the
scheme. High level of awareness can be attributed to meticulous planning and
execution of start-up activities, training, involvement of Kudumbashree and
high level of literacy rate.
99.4 per cent of the respondents reported that they received wage rate
of Rs.125/-per day which shows that all of them were assured of minimum
wages prescribed by the state. All the respondents received wages in ‘full’. No
incidence of under payment and non-payment was reported.
Wages are to be paid within a period of 15 days from the date of
completion of work. Little less than two-third of the respondents have received
wages within 15 days. The rest got wages only after 15 days. Wayand has the
lowest time lag of 12.57 days, between date of completion of work and receipt
of wage, followed by Alppuzha with 20.86 days. The reasons for the delayed
payment as reported in the focus group discussion are: i) lack of staff; ii) delay
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in providing muster rolls; iii) delay in measurement and iv) lack of monitoring
by panchayat.
Wages earned by men under NREGA was much lower when compared
to wages earned elsewhere. The average wage difference was Rs.74/-. In
certain districts like Alapuzha wages in the market for men is double the
wages under NREGA. However, for women the wages under NREGA was
better. The average difference was as high as Rs.38 in Palakkad.
Impact of NREGA
There has been substantial change in the household income after the
introduction of NREGA. The change in the average income was found to be
much higher in Idukki with Rs.2601/- followed by Alapuzha with Rs.2093/-.
NREGA has impacted on the expenditure of households. Majority of
the respondents reported that their family expenses increased in proportion to
the increase in family income. Increase in family expenditure was high in
Idukki (Rs.2369/-). The average increase in family expenditure for all the
districts put together is Rs.1172/-.
The wages earned under NREGA was spent on a variety of purposes
such as household activities, education, buying of assets, purchase of food
grain, hospital expenses, payment of old debts and so on. Majority of the
respondents (47.9%) reported that they spent the NREGA wages for
household activities, education (33.5%), purchase of food grains (30.3%) and
medical expenses (22.6%).
The scheme has impact on savings too. Around 45 per cent of the
households have savings of less than Rs.1250/-. The average savings per
household was Rs.563/-.
There has been increase in the livestock population after the
implementation the scheme. The increase is marginal as reported by the
respondents.
The scheme has empowered the women in social and economic
domains. Participation of women in large number in the scheme and in the
Grama Sabha meeting, the wages earned by them under the scheme, their
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connectivity to the external world through NREGS especially with banks,
government functionaries and local government etc., have improved their
status in the family and community. The women felt a ‘change’ in their status
after the introduction of the scheme.
The scheme has helped in bringing down the level and intensity of
migration as reported by one-fifth of the respondents. The effects of decrease
in migration was found high in Idukki (42.5%) followed by Palakkad (17.1%)
and Wayanad (16.3%).
Box 6.1: NREGA enhanced the credibility of the poor
Mercy Joseph Pantrandil, a resident of Edathuva Gram Panchayat is a beneficiary of AAP (Anthyodaya Anna Poorna) scheme. Her family comprises of her mother- in-law, husband and two children. Before the introduction of the scheme in Allapey District, the family had to depend only on the income earned by Mercy’s husband Mr. P.Joseph, who is an agricultural labourer. As Mercy’s mother-in-law is a heart patient, a major part of the income had to be spent to meet her medical expenses. The NREGA was introduced in her area in the year 2008. In the beginning, Mercy was reluctant to register and work under NREGS, as she is not used to the type of works taken up in Kuttanadu area of Kerala. Even her friends discouraged her from taking up such works. But, she was convinced of the benefits of the scheme; registered herself under the scheme; and started working. She said that she could pick up the work so fast and she started benefiting from the scheme. The wages she earned under the scheme has been spent on meeting the medical expenses of her mother-in-law and the day-to-day household expenses. Besides, she also bought 4gms of gold and bought a goat. She could also utilize a part of the wage she got from the scheme to construct the kitchen. Mercy said that, everyone is now willing to lend money as her debt servicing capacity has increased due to the improved income through NREGS.
Benefits of NREGA
NREGS has brought in several benefits to the households. Important
among them as perceived by the households are: improved family income
(10.8%), payment of children education fee (11.6%), improved family status
(9.4%) and so on. The members participated in the FGD across the
panchayats invariably expressed the fact that the scheme has guaranteed
employment with an annual income of Rs.12,500/-.
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Box 6.2: NREGA Lends a Helping Hand to the Victim of Agrarian Crisis
Prasanna Gopi of Poothady Panchayat in Wayanad district will never forget 5th
August 2005. It was the day when her son Prajeesh joined 11th standard and her husband
Mr. Thadathil Gopi committed suicide. Gopi used to work as an agricultural labourer on a daily wage basis to earn his living. The agrarian crisis in Wayanad area gave a rude shock to his livelihood source. As a result he borrowed from private bank and local money lenders. He could not service his debts resulting in soaring of interest charges. He committed suicide as many did so in Wayanad area. Prasanna lost the only bread winner of her family. She struggled very hard to find work to support her family consisting of two sons. It was at that juncture NREGA was launched in Wayanad. She came to know about the scheme through the panchayat and registered herself under the scheme. She has been very active participant in the scheme. She worked for 100 days in 2007-08 and also in 2008-09. She is quite happy now. She has assured employment. Her sons are attending school. She could bear the educational expenditure of her sons. She does not have any problem in meeting day to day expenses. In fact she has started saving some amount of money out of the wages earned under NREGA.
Box 6.3: “I need not go with empty stomach with the introduction of NREGA”
Vallyammal (39 years old), wife of Ranganathan (46 years old) belongs to Puthur Panchayat of Attappady block, Palakkad district. Vallyammal’s family consists of her husband Ranganathan, who is an agricultural labourer, their daughter Krishnaveni, who is studying in higher secondary and their son Sreenath who is in middle school. They have one and a half acres of dry land which is not amenable for cultivation. Before the introduction of the NREGA, Ranganathan, the head of the family was the only bread- winner and they find it really hard to make both the ends meet with meager and erratic income. Vallyammal has a strong conviction that a scheme like NREGA is a boon to families like theirs. After the introduction of the scheme, she got 100 days of employment every year under the scheme. She is happy that she could make use of the provision of the scheme to the fullest extent. The works in which she participated includes, construction of rain pit, retaining wall, check dam, and renovation of traditional water bodies like ponds and river. She got a minimum wage of Rs.125 per day and earned RS.12, 500/- per annum. She could get an amount of Rs.37,500/- over a period of 3 years. She said that she made use of the money mostly to meet the household expenses and educational needs of her children. Vallyammal reported that she had to go with an empty stomach in order to provide food to her children, before the introduction of the scheme. It is now a thing of the past and all the members of the family are assured of food. She had completed 42 days of employment in the current financial year (up to September 2009) and she is confident that she could find 100 days of employment by the end of the financial year.
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Box 6.4: Water-body retained
Kolukkapara (Ward no.4) of Kozhinjampara Grama Panchayat is a remote village. Majority of the households are engaged in agriculture and agriculture labor. The village has experienced water scarcity both in agriculture and domestic purpose.The village has a traditional tank (Thenakulam) which is almost silted. There is a Vinayakar temple adjacent to the pond. The pond was a source of water for domestic and agricultural purposes. The people of Kolukkapara identified desilting of Thenakulam as one of the items of work that could be taken up under NREGS. The subject was discussed in Grama Sabha and it was included in the schedule of work.The work was taken up on 1
st Oct. 2008 and completed
on 17th Dec 2008. The size of desilted pond is 100m x 82m x 5m. 141 laborers worked for
45 days, of whom130 were women and 11 were men. Of the total workers 29 of them belonged to SC. The pond was desilted; follow-up activities such as construction of retaining wall, steps etc. were taken up and completed. The panchayat has taken up the task of cleaning the channels and pond on a regular basis. Around 100 families got benefited in the form of water for cultivation, water for domestic use and cattle. People felt that the pond would not have been desilted but for NREGS.
Mrs. Omana, aged 57, has studied up to 8th standard. She has 3 daughters. She
owns a house provided under IAY. She is an agricultural laborer and a member of Kudumbashri. Her husband fell down and subsequently affected mentally. She came to know about NREGS in 2008 thro’ panchayat and government officials. She registered herself; received job card and applied for work. She got work within the stipulated period and worked for 24 days in 2008 – ’09 and 36 days in the 2009 – ’10 (up to Oct. 15
th 2009). She has participated in works such as cleaning either side of road,
cleaning of drainage, desilting of river etc. She has spent the wages earned on purchasing of food grains and milk, payment of electricity bills and meeting medical bills. She has also started repaying the old debts. She said that the scheme is very relevant in remote areas as it not only provides assured employment, but also empower socially marginalized women like her.
The scheme has also brought benefit to panchayats. The benefits as
reported by respondents and reiterated in the focus group discussions
include: maintenance of road, renovation irrigation canal and channel,
creation and renovation of water bodies like tanks, ponds and wells, rainwater
harvesting, improved water resources and so on.
The works taken up by the panchayats have brought may changes.
The road works carried out enabled the panchayats to develop better
connectivity between villages and urban centres. The soil and water
conservation activities helped in recharging the ground water which in turn
resulted in improved irrigation facilities. The clearance of drainage channels
helped easy flow of water and in draining the excess rain water.
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The respondents reported that there is appreciable change in the
relationship among the NREGS workers. (See Box 6.6). Improved relationship
is a sign of creation of social capital in the villages which in turn would help to
have better access to other sources of capital.
Box 6.6: NREGA facilitated socialisation
Rasheed (34 years) is from Thavinhal Grama Panchayat of Wayanad district. He is mentally ill. His family comprises of his father, mother, wife, sister and niece. Before the introduction of NREGA, Rasheed’s main source of livelihood was cattle rearing and he could always be seen with a herd of cattle. His father became sick and was bed – ridden. The health of his mother too was deteriorating. The entire family was depended on Rasheed’s income. There was no other choice for Rasheed than to take up a better work which would earn him more money. When NREGS was introduced in Thavinhal Panchayat, Rasheed registered under the scheme and started working under the scheme. The scheme provided a great deal of opportunity to socialize with others which has brought the changes in him. His illness too diminished gradually. At present, he is a family man works enthusiastically and earns a livelihood for the whole family through NREGA.
Social Audit
Social audit has been conducted in all the four districts. Social audit
teams consisting of 12 members have been formed in all the panchayats as
per the guidelines of NREGS. The teams are found to have perused the
records, interacted with beneficiaries and functionaries, visited the worksites
and monitored the works, crosschecked the muster rolls, wages received for
each work and completed all the works essential to complete the process of
social audit. The team has prepared and submitted the social audit report to
Grama Sabha for approval. The approved reports have been submitted to
appropriate authorities.
Grievance redressal
Complaints raised are solved then and there. No complaints has taken
shape out of proportion to be able to solve locally. The toll free number
available for making complaints about mismanagement of the programme on
individual grievance is not known to many of the respondents. As a result,
none of them could use the toll-free number meant for grievance redressal.
Convergence
Convergence of schemes of different departments could be observed.
Convergence has taken place with departmental activities of irrigation,
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agriculture, highway and fisheries in Wayanad and Palakkad districts.
Convergence with Forest department has taken place in Alapuzha.
Convergence is reported of Department of Agriculture and Department of
Forestry in Idukki District.
Roles of various functionaries
Grama Sabha has played a very active role in initiating and
implementing various activities under the NREGS. Participation in Grama
Sabha meeting was quite high and the members actively participated in
deliberations related to NREGS works such as selection of worksite, payment
of wages, monitoring of on-going works, work timing, measurement of
worksite and so on. Elected representatives involve themselves in monitoring
the works undertaken and execution of the work. Kudumbasree members get
involved at different stages of NREGS. They serve as a bridge between the
workers and the panchayat. NREGA staff offer technical and non-technical
assistance and act as facilitators in the whole process for the panchayat to be
able to implement the scheme successfully.
Performance of the scheme as perceived by the respondents
The performance of the scheme with reference to variables such as
‘process of registration’, issues of job-card, selection of work-site, relevance of
the works selected, supervision at the work-site, support of government
officials, participation of people, benefits accrued to the panchayat and to
households have been rated as ‘very good’ by the respondents. However, the
performance of the scheme with reference to aspects such as execution of
work, quality of work executed, facilities at the worksite, mode of distribution
of wages, transparency and grievance redressal has been rated as ‘good’
indicating the scope for improvement. There are however, inter-district
variations in the performance as perceived by the respondents.
Conclusion
The study carried out in Kerala has its focus on assessing the
performance of the NREGS in Kerala. The study has covered a sample of 620
respondents selected at random in 31 panchayats, spread over 8 blocks in 4
districts. The study has employed a mix of methods in order to gather both
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quantitative and qualitative data and information that would help objectively
analyse the performance of the scheme in the state. The scheme has been
implemented in three phases - two districts in first phase, two districts in
second phase and the rest in the third phase. Kerala with its pioneering
experience in local planning and development has been able to effectively
ground all the essential activities specified under the NREGA. The scheme
has reached the right category of households. The start up activities designed
and carried out in various panchayats have generated high degree of
awareness among the people resulting in their active participation. All the
registered households were issued job cards. Right type of works have been
identified inspite of differing geographical conditions across the districts.
Works have been executed in a methodical and systematic manner.
There is a marked improvement in the average number of days
employed per household and the number of households employed for 100
days. Works are provided within a radius of 5 km. Basic facilities are made
available at the worksite though they are inadequate. Wages are paid in full
through banks and post offices. There has been no report of delay in payment
of wages. Wages for men under NREGA is less than prevailing wage rates.
Wages for women under NREGA is higher than the prevailing wage rates.
Though it is too early to expect the impact of the scheme, evidences clearly
indicate that the scheme has impacted on the income, expenditure pattern,
savings, migration, assets, status of women and social relationship. The
scheme has also brought in benefits to the households as well as to the
community. The respondents have rated the functioning of the scheme with
reference to select variables as ‘very good’ which is a sign of good work done
by the various functionaries of the scheme.
* * * * *
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Chapter - 7
Recommendations
We present here a set of recommendations based on the inferences
drawn from indepth qualitative and quantitative analysis and dialogue with
various stakeholders of NREGA.
• 100 days of employment per adult member of rural household should be
guaranteed instead of 100 days per rural household. This would help
improve the income level of households who primarily depend on NREGS
for their livelihood.
• A major complaint about NREGS is that it affects the agricultural
operations especially during the peak season. Hence, NREGS work may
be temporarily suspended during the peak season to facilitate the smooth
operation of agricultural activities. In fact, such arrangements have been
informally made in some of the panchayats visited by the study team.
• Land improvement and soil conservation works in private agricultural lands
and construction of farm ponds in the lands of small farmers may be taken
up in the larger interests of enhancing agricultural production in various
regions. Such kinds of work may be taken up with matching financial
contributions of the land owners.
• Panchayats should be allowed to take up works involving material cost
(even if it exceeds the prescribed limit) as one cannot always find
labor-intensive works in certain pockets of districts and the state.
• We have at present a blanket-type of guidelines uniformly applied in all the
states and regions. Evidences from the field have clearly indicated the
problems in adhering to the guidelines especially when it comes to the
selection of worksites and adhering to the limit prescribed for the material
cost. It is, therefore, recommended that the panchayats may be permitted
to prepare region-specific employment plans without deviating much from
the twin objectives of employment guarantee and sustainable natural
resource management.
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• Minimum wages, especially in a state like Kerala, need to be revised
upward. Men’s participation is restricted due to low wages under NREGA.
The wages for women under NREGA, in certain districts (Alapuzha), is
much closer to the prevailing wages. Hence, there is a strong ‘case’
towards revision of minimum wages prescribed and also wages paid under
NREGA.
• Though NREGA is labour-intensive work with emphasis on physical
labour, certain items of work like water and soil conservation require
skilled lobourers. Provision should be made to temporarily employ skilled
labourers. This may necessitate payment of higher wages to such
labourers.
• The Act does not permit re-intervention in an area where the works have
already been taken up and completed. This rule may not be applied
uniformly in all the regions. For instance, flood control and protection work
needs to be taken up annually in the water logged areas like Kuttanad in
Alapuzha district. Hence, it is recommended that provision of one time
intervention need to be revised and the panchayats should be allowed to
re-intervene based on the nature of work ( e.g. removal of ‘Pola’- a type of
waterweed)
• Delegation of responsibilities, works and the required authority from the
block to the panchayats may be seriously thought of to avoid procedural
delays. For instance, the responsibility of worksite measurement may be
given to the panchayat administration. The officials from the block may
supervise the work done as often as possible and thereby can quicken the
process of payment of wages.
• The Act guarantees ‘the right to work’. Hence, the ‘demand for work’ will
be there for ever. Hence, there is a need for staff exclusively to look after
the works taken up under the NREGA. The staff who are currently working
under the scheme may be made permanent. Taking in to account the
quantum of work done in each panchayat, we may have to revise the
organizational structure and make necessary modification. The
organizational structure as proposed during the FGD is given below.
Description Options Response 1. Do you own land? 1 - Yes; 2 - No
If ‘No’, GOTO Q No. 3
2. If ‘Yes’, specify the extent of land do you possess?
1. Dry
2. Wet
3. Farm Land (Garden)
(In Acres)
4. Housing
3. Have you purchased / taken on lease any land during last 1 year? 1 - Yes; 2 - No
4. If ‘Yes’, specify the extent of land purchased/ taken on lease? Specify in Acres
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2.6 Livestock
S. No Livestock Number Total Value Income derived 1 2 3 4
1 He buffalo
2 She buffalo
3 Cow
4 Bullock
5 Goat
6 Sheep
7 Pigs
8 Poultry
9 Donkey
10 Others Specify
2.7 Household Assets
S. No Asset Yes/ No S No. Asset Yes/ No 1 Grinder 8 Cart 2 LPG Connection 9 Cycle 3 Television 10 Two Wheeler 4 Air conditioner 11 Three Wheeler 5 Fans 12 Tractor 6 Personal Computer 13 Tiller 7 Cell Phone 14 Others Specify
2.8 LOANS
1. Do you or your family member have an account in any bank?
1 - Yes; 2 - No If No, GOTO Q No.3
2. Have you taken any loan in last one year? 1 - Yes; 2 - No
3. If ‘Yes’, give details.
Last one year
From Whom No. of
Times Purpose
Loan
amount
Interest
rate
Mode of
repayment
Any
repayments
in Rs
How did
you mange
to get loan
Current
out-
standing
[1] [2] [3] [4] [5] [6] [7] [8] [9]
Code: Column 3: 1 - Construction of house; 2 - Purchase of land; 3 - Purchase of household assets; 4 - Purchase of food grains; 5 -
Marriage of daughter/ son/brother;/sister; 6 - Medical treatment; 7 - Repayment of old loan; 8 - Death Ceremony; 9 - Other social ceremony; 10 - Education; 11 - Celebration of festivals; 12 - Others ______________
Column 6: 1 - Installment; 2 - Lumpsum; 3 - Any other specify ________________ Column 8: 1 - Mortgage immovable property; 2 - Mortgage assets; 3 - Promissory note; 4 - Through a guarantor; 5 - SHG membership; 6 - Any other specify ______________________
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2.9 Migration
1. Has any member of the family migrated? If yes How many members? Specify the reason
1 – Yes; 2 – No
2. If ‘yes’ specify the reasons for migration?
3. for what duration
4. Where do they migrate normally?
Code: For Row 2: 1 - Seeking employment in lean season; 2 - better wage earning; 3 - Better amenities; 4 - Children education; 5 - Others ___________ For Row 3: 1 - <2 Month; 2 - 2-4 Months; 3 - 4-6 Months; 4 - 6-12 Months; 5 - Above 12 months 2.10 Social Participation of the Members
Particulars Office Bearer Member only
1. Local Panchayat
2. Caste Association
3. Youth Association
4. Local Cooperatives
5. NGOs
6. SHGs
7. SHG Federation
8. Temple committees
9. Others
i)
ii)
iii)
3. Participation in NREGA
3.1 Awareness about NREGA
3.1.1 How do you come to know about NREGA in your area?
i) News papers
ii) Radio
iii) Television
iv) NGO Representative
v) Panchayat
vi) Govt. officials
vii) SHG
viii) Friends / Relatives / Neighbours
ix) Any other specify
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3.1.2 Are you aware of the important provisions of NREGA? Yes / No
3.1.3 If yes, Specify
Provisions RS RAP
i) 100 days per households
ii) Minimum wage
iii) Knowledge about correct minimum wage
iv) Equal wages for men and women
v) Work within a radius of 5 km.
vi) Universal Act
vii) Role of Grama Sabha
viii) No labour displacing machinery
ix) Eligibility for unemployment allowance
x) Compensation for delayed payment
xi) Medical assistance for injury in the worksite
xii) Worksite facilities
xiii) Exgratia payment for death and disability
xiv) Right to payment within a fortnight
RS: Response Spontaneous RAP: Response after probe
3.2 Registration
3.2.1 Have you registered under NREGA? Yes / No
3.2.2 If yes, give details
i) When did you register?
ii) Have you received job card? Yes / No
iii) What was the time lag between date of registration and receipt of job card?
iv) Have you faced any problem? Yes / No
v) If yes, specify the problems
vi) Have you spent any amount for receiving job card? Yes / No
vii) If yes, specify the amount.
viii) Who bears the cost of photography
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3.2.3 Mention the other members in your family who registered under the programme.
3.2.4 What are the steps taken by the panchayat to complete the process of issue of job cards?
3.3 Employment
3.3.1 When was the scheme introduced in your panchayat?
3.3.2 What are the various items of works undertaken in your panchayat?
3.3.3 How the works were selected?
3.3.4 Did you participate in the Grama Sabha meeting? Yes / No
3.3.5 If yes, was there any discussion on any matters related to NREGA? Yes / No
3.3.6 If yes, specify
3.3.7 Have you sought employment under the scheme? Yes / No
3.3.8 If yes, were you given ‘dated receipt’ by the panchayat? Yes / No
3.3.9 What is the time-lag between date of application and the provision of employment?
3.3.10 Was there any delay beyond 15 days in getting employment Yes / No
3.3.11 If yes were you given unemployment allowance? Yes / No
3.3.12 If yes what is the amount received?
3.3.13 For how many days have you got employed? (year-wise)
No. of days employed S.no Year
Self Family members
1.
2.
3.
4.
5.
3.3.14 Specify the various items of work in which you participated?
3.3.15 What is the distance from the residence to the place of work?
Minimum km. ________ Maximum km. ___________
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3.3.16 Were you given TA if the worksite was beyond the distance of 5 km? Yes / No
3.3.17 If ‘yes’ what was the TA received?
3.3.18 What is the mode of transport used by you to reach the place of work?
3.3.19 What is the transport cost incurred?
Minimum Rs. ________ Maximum Rs. ___________
3.3.20 Who bore the transport cost?
3.3.21 What is the working hour?
3.3.22 What are the facilities made available at the worksite?
3.3.23 Are they adequate? Yes / No
3.3.24 If ‘no’ what more facilities are required?
3.3.25 How would you rate the quality of the work executed?
Very Good / Good / Average / Poor / Very Poor
3.3.26 Who provides the tools for the work in the worksite? Panchayat / Self /Kudumbasree/
Area Development Society
3.3.27 If ‘self’, are the tools of your own or hired?
3.3.28 If ‘hired’ what is the rent paid by you for the tools?
3.3.29 Are the tools worker friendly? Yes / No
3.3.30 If yes how?
3.3.31 Have you faced any problems in the worksite? Yes / No
3.3.32 If ‘yes’ give details
3.4 Wages
3.4.1 What is the minimum wage rate fixed in your state?
3.4.2 Do you know the mode of fixation of wage for the work done by the workers under NREGA? Yes / No
3.4.3 If ‘yes’ specify.
3.4.4 What is the wage earned by you under the scheme?
Minimum Rs. :
Maximum Rs. :
Average Rs. :
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3.4.5 How is your wage paid? By cash / through bank / through panchayat office /thro’ post office
3.4.6 If the wage is paid through bank / post office, was there any problem in withdrawing the cash from the bank/post office Yes / No
3.4.7 If ‘yes’ specify the problems.
3.4.8 What is the time-lag between date of completion of work and receipt of wages?
3.4.9 Was there any delay in payment of wages? Yes / No
3.4.10 If ‘yes’ specify the
i) extent of delay
ii) reasons attributed for the delay
3.4.11 Were you able to get the wages in ‘full’? Yes / No
3.4.12 If ‘no’ why?
3.4.13 Is the muster roll read out when wages are paid? Yes/No
3.4.14 What is the difference between wages under NREGA and the prevailing wages for other than NREGA work?
Normal NREGA Men Rs. :
Women Rs. :
3.4.15 What is the effect of NREGA on the wage structures in the market?
Decreased / increased from Rs. _____ to Rs. _____ for men.
Decreased / increased from Rs. _____ to Rs. _____ for women.
3.5 Effects of NREGA
3.5.1 How did you spend the wages earned under NREGA?
3.5.2 What according to you are the benefits of NREGA to your family?
3.5.3 What are the benefits of the scheme for the panchayat as such?
3.5.4 What are the changes that the scheme has brought into your panchayat?
3.5.5 Did you migrate to other areas in search of job before the introduction of the scheme? Yes / No
3.5.6 If ‘yes’ specify:
i) Where did you go?
ii) What was the duration?
3.5.7 What is the level and intensity of migration after the introduction of the scheme?
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3.5.8 Do you find any change in the relationship among the households after the introduction of the scheme? Yes/No
3.5.9 If ‘yes’ specify the nature and intensity of relationship.
3.5.10 What according to you are the impacts of the scheme on the following?
i) Livestock
ii) Income
iii) Expenditure
iv) Liability
v) Savings
vi) Empowerment of Women
4. PERFORMANCE OF THE NREGA
Given below are the key criteria related to the functions of NREGA. Rate them on a five point scale.
Criteria
Very Good 5
Good 4
Satisfactory 3
Poor 2
Very Poor 1
4.1 Process of Registration
4.2 Issue of job cards
4.3 Selection of works
4.4 Execution of works
4.5 Supervision at the worksite
4.6 Facilities at the worksite
4.7 Mode of distribution of wages
4.8 Quality of the work executed
4.9 Relevance and usefulness of work to the village / people
4.10 Transparency
4.11 Grievance redressal
4.12 Participation of people
4.13 Support of govt. officials
4.14 Benefits occurred to the panchayat
4.15 Benefits occurred to the households
Date & Time of Interview Name & Signature of the Volunteer
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Focus Group Discussion with panchayat functionaries
District : Block :
Panchayat: Venue :
Date : Number of participants:
Checklist
1. Start-up activities
1.1. What are the various start-up (IEC) activities undertaken by the panchayat to generate
awareness about NREGS among the households? Who get involved in IEC activities?
1.2. How are such activities received by the households?
1.3. What are the effects of start-up activities?
1.4. What is the amount of funding received towards start-up activities? How was it spent?
Were you able to fully utilize the fund for the activities? If ‘no’ why?
1.5. Did you convene exclusive Grama Sabha meeting on NREGS? If so what was the
response to the meeting? What were the decisions taken in the meeting?
2. Launching of the scheme
2.1. When was the programme launched in your panchayat?
2.2. Are you aware of the key provisions and procedures of the Act? If so specify.
2.3. Did the President, ward members of the panchayat attend the orientation training on
NREGA? Yes / No. If ‘yes’ what is the content and quality of the training?
2.4. What was the initial response of the people to NREGA?
3. Registration and issue of job cards
3.1. What are the efforts made by the panchayat for registering the rural households under
the scheme?
3.2. What is the role of Kudumbasree in registration and issue of job cards?
3.3. Have all the rural households got registered under the scheme? If ‘no’ why?
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3.4. Are employment seekers able to register freely and easily for job cards?
3.5. Is the data bank available about the registered candidates? If so how is it prepared and
maintained?
3.6. How are the job cards generated? (manually/ computerbased)
3.7. Who is in-charge of issue of job cards?
3.8. What is the time gap between registration and issue of job card?
3.9. Did you charge any amount for registration and issue of job card?
3.10. Who has the possession of job cards?
3.11. Did you come across any problem in registering and issuing job cards? Yes/No. If ‘yes’
specify?
3.12. What are your suggestions to overcome such problems?
4. Identification of work
4.1. Was the Grama Sabha convened to select the work? If ‘no’ why?
4.2. Who identifies the work? Do they follow the guidelines to select the work? Do they
estimate the quantum and value of work? If yes how do they estimate?
4.3. Have you got an approved shelf of projects of atleast five works with technical and
financial estimates ready to start when employment demand is received?
4.4. What kinds of works have been given priority?
4.5. What are the approved works on public display in the panchayat?
4.6. Have your come across any problems in identifying the work? Yes/No
If you what are they add to in do you overcome such problem
5. Demand for employment
5.1. Do the job seekers submit application for employment? Yes/ No. If ‘no’ why?
5.2. Are the applications given in writing? If ‘so’ are receipts given? Are receipts dated?
Who is responsible for providing dated receipts in the Grama Panchayat?
5.3. Is there any delay in provision of employment? If ‘yes’ give details.
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5.4. Are there any instances of provision of unemployment allowance? If ‘yes’ give details.
5.5. Have any special efforts been made to create demand among SC/ST? If ‘yes’ give
details.
6. Execution
6.1. Have all the registered households participated in the scheme? If ‘no’ what are the
factors hindering participation of the households?
6.2. Describe the step-by-step process followed in execution of NREGS work. (Please note
whether respondents are able to list the following key steps
i) Identification of work.
ii) Preparation of people’s estimate by engineers
iii) Project initiation meeting.
iv) Citizen information board
v) Provision of implements.
vi) Worksite facilities ( drinking water, first aid box, crèche, provision of shade, toilet )
vii) Maintenance of muster roll
viii) Maintenance of worksite diary by the mate.
ix) Inspection of work.
x) Photography of the activities (project initiation meeting; before execution , during
execution, after execution)
6.3. Is there any mismatch between the demand for work and the availability of work?
What are the steps taken by the panchayat to fill the gap between demand and supply?
6.4. How is the muster roll generated? Are muster rolls properly maintained?
6.5. Were there any incidents when workers without job-cards working on worksites? If
‘yes’ why?
6.6. How and when the measurement of work is done? Is the measurement delayed beyond
14 days? If so why?
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6.7. Have engineers/overseers visited the worksite? If so how often? Are works-in-progress
technically supported on a regular basis? Yes / No. If ‘no’ why?
6.8. What is the average number of days employed in a year? Are there variations across the
households in terms of number of days employed with reference to caste, gender,
occupation, family size, age etc.? If ‘Yes’ what are the reasons?
6.9. Are you able to provide employment continuously for 14 days? If no why? What is the
percentage of disabled employed under the scheme? What type of work is allotted to
them? What are the problems faced by them under the scheme?
6.10. What are the facilities made available at the worksite? Are they adequate? If not what
more facilities are required?
7. Payment of wages
7.1. Does all the workers possess savings bank account?
7.2. What is the average amount of wage paid per day per labour? Does it vary from group
to group? If ‘yes’ specify the reason?
7.3. Are the workers able to earn the notified wage for agriculture labourers?
7.4. Are the workers earning the full task rate notified in the schedule of rates? If ‘no’ what
are the reasons?
7.5. Is the task rate earned equal to minimum wages? If no specify the reasons.
7.6. Is there any variation in the wages earned across the households? Is so what are the
reasons?
7.7. What is the system followed in distribution of wages? Have the households expressed
any problems in getting wages? If so what are the problems?
7.8. What is the time lag between work completion and payment of wages?
7.9. Women got employed in large number under the scheme. What are the problems faced
by them in the worksite? What steps have been taken to overcome such problems?
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8. Impact
8.1. What is the impact of the programme on the rural households with special reference
to:
i) Livelihood
ii) Income
iii) Assets
iv) Expenditure
v) Savings
vi) Liability
vii) Migration
viii) Social capital
ix) Empowerment of women
8.2. How do people spend their wages?
8.3. What is the level and intensity of migration after the introduction of the scheme?
8.4. Has the scheme resulted in creation of allied livelihood on the foundation of water
security?
8.5. What is the quality of the work? Have the works undertaken helped in developing
productive assets? Have they helped in conserving soil, water and other natural
resources?
9. Staff and Training
9.1. Do you have any advisory group for effective planning implementation and monitoring
of the programme? If so give details of:
i) how is it constituted
ii) Composition of the advisory group
iii) Roles and responsibilities of the advisory group
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9.2. Have the functionaries such as accountant-cum-computer operator, Panchayat
Secretary, President and Ward members been trained in planning and implementing
the scheme? If so give details of:
i) Nature of training
ii) Content of training
iii) Duration of training
iv) Participants of training
v) Effectiveness of training
vi) Problems in imparting training
9.3. Have you introduced the system of online monitoring? If ‘yes’. Gives details of:
i) The items of work monitored.
ii) Effectiveness of online monitoring
iii) Problems in online monitoring.
10. Records
10.1. What are the various books, registers maintained? Are they maintained as per the provisions of the Act? 10.2 What are the problems in maintaining the books and registers?
11. Monitoring
11.1. Have the works been inspected by block / state functionaries? If ‘yes’ how often? Have
they recorded their observations? If so what is the nature and content of observation?
11.2. Have you constituted vigilance and monitoring committee? Who are the members?
What are their roles and responsibilities? How do they function? Have they been
trained? If so specify the nature and content of the training?
11.3. Does the VMC monitor and certify the completion of work?
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12. Social Audit
12.1. Has social audit of all work been done? Who did the social audit? What is the process
followed in social audit? What was the outcome of social audit?
13. Grievance Redressal
13.1. Do you maintain the complaint register? How many complaints are received? What is
the nature of the complaints? How complaints are disposed?
13.2. You have toll free helplines? Are people aware of it? How many complaints have you
received thro’ Toll free helplines? How many of them are disposed? Were there any
problems in disposing grievances thro’ online? If so give details.
14. General
14.1. Is the organizational structure to implement the scheme adequate? Does it require
modification / change? What is support infrastructure available to implement the
scheme?
14.2. What is the mechanism evolved and adopted to ensure transparency and
accountability under the scheme? What is the degree of transparency and
accountability found in the scheme?
14.3. How do you differentiate NREGA scheme from earlier schemes for such as SGRY
14.4. Is the relevant scheme to your area If so How?
14.5. What are the various issues in converging the activities of various departments (e.g
forest, Irrigation, Agriculture) with NREGA work?
14.6. Explain the role of
i) Elected representatives
ii) Kudumbasree
iii) Officials in NREGA (panchayat, Block& district – Technical & Non Technical)
14.7. What in the next step envisaged at the local level for better implementation.