West Bengal
-
The existing Census definition of household on the basis of common kitchen is being followed. This has resulted in an average of 3.3 eligible workers per job card. The definition of household must be nuclear family
-
At the moment, only household cards are being issued. Individual cards must be issued to facilitate women’s empowerment
-
Female-headed and single member female households are subsumed within joint families with common kitchen, esp. in natal homes. Several female-headed households are excluded from registration as independent households. Female headed households and married but separated daughters in natal homes as well as widows must be given separate cards. The definition of households must include single-member households
-
Workers earn between half to two-third of the minimum wage under the existing task-based productivity norms. This is for three reasons: very high productivity norms; clubbing together of the tasks for loosening, digging and lifting; and the same norms for men, women and older persons despite differential ability. A small downward revision in outturn requirements in Bankura and Birbhum has not succeeded in earning more than three-fourth of the minimum wage. Productivity norms in the Schedule of Rates need to be further reduced by thirty to fifty per cent in order to ensure payment of minimum wages. Furthermore, the norms for women must be no more than 85 per cent of the norm for men, and the norms for the elderly must not exceed 67 per cent of the norm for men. Finally, there must be no clubbing together of different tasks and component activities must be clearly identified and demarcated. Instead of the current practice of covering lift and lead under digging, lifting and throwing must become separate tasks with appropriate rates.
-
There must be part payment of wages in foodgrain, a major impediment to which is that the central government has decided not to send grain for this Scheme.
-
There were no crèches for children at the worksites, for which reason women did not bring children with them, and the local administration claimed that they did not provide childcare since no children came. Even if a woman is deputed to look after the children when there are 5 or more such children at the worksite, there are no proper facilities for a crèche and therefore women feel constrained to bring their children to the worksite. Proper crèches and daycare centers with some provision for nutrition may be set up in the village itself as an NREGS activity or through dovetailing with the ICDS programme. Furthermore, the number of people who can be provided drinking water by one person should not exceed 30, since repeated trips have to be made to refill the pots.
-
Very crucial to think of works which can be taken up in the period of greatest need, which are needed most, the months of low food security when distress out-migration is highest, after sowing and before harvesting in kharif. These cover the rainy months of August and September. At this time, heavy rain does not permit large scale earth works.
-
Apart from public works, some women-friendly livelihood generating activities may be taken up, like sericulture, horticulture, food processing, processing of minor forest produce, etc.
-
The Government should evolve a special land improvement package for female-headed farms that includes land leveling, farm bunding, fruit trees and fodder plantation on bunds and a farm pond.
-
The labour component under the Indira Awas Yojana may also be paid from the NREGS. Another suggestion is the permission to produce low cost mud bricks for buildings, which have many advantages like being easily transferable, no fuel requirement, no environmentally hazardous consequences, easy repair and maintenance. If the NREGS were to permit such construction activities, an alternative building technology could be evolved.
-
Drive to generate awareness and train government officials and Panchayat representatives
-
The entire edifice of groups performing such earth works rests on family-based couples or jodis, usually a husband and a wife. Single women find it very difficult to find a partner and are therefore not included in groups. Such women may be paid on a time-rate basis.
-
It was pretty evident that a single mate can not manage a site of more than 70-75 workers, and this should be the norm. Larger worksites should have two mates.
Tamil Nadu
-
The state government has taken two very commendable steps. They have substantially revised productivity norms in order to ensure the payment of minimum wages to workers on NREGS worksites after time and motion studies.
-
They have also very successfully issued individual cards.
-
However, the operational definition of household is common kitchen, which must be changed to nuclear family (including single-member households).
-
During the survey in June and July we found that though the pace of registration was sluggish, the distribution of job cards was even slower. This picture changed by October, by when registration had increased and the gap between registered households and job cards distributed had reduced considerably.
-
There is a huge gap in the performance between the two districts, with Nagapattinam doing much better than Villupuram
-
Additionally, there is a widespread use of arbitrary and unjustifiable criteria like age, BPL card, income, or disability etc. for eligibility, with an exclusion of the elderly and disabled
-
Several female-headed households and separated/widowed/abandoned women living in natal homes are not recognized as independent households and either excluded completely or included in their natal family’s job cards.
-
There was a widespread exclusion of migrants, since registration was not seen as a continuous process
-
The elderly are being deliberately left out
-
Workers face a problem of funds to purchase implements and there is also high wear and tear, and it is a good idea for PRIs to buy the implements under the material component of the NREGS
-
There are two state government instructions, one requiring a lower limit of Rs 3 lakhs on works under the NREGS and the second not allowing the 40 per cent material component permissible under the NREGA. We are of the view that these are needlessly restrictive. The rationale put forward by the state government is that a Rs 3 lakhs lower limit is financially feasible since the existing money permits 8 to 9 such works per village. It will facilitate longer duration employment, timely payment, easier measurement, better monitoring, lower administrative burden and costs. They also argued that the moment material component is permitted, contractors will follow since organization of materials is difficult and leakages will occur. Therefore, all essential concrete structures should come from other Schemes through dovetailing.
-
Workers demand part payment of wages in foodgrains, and say that if the existing quality being distributed at Rs 2 a kg is given it should be valued at Rs 2, or better quality rice should be given at BPL prices
-
Worksite facilities are extremely poor in Villupuram, but even elsewhere, they are inadequate
-
There is a need to encourage job applications, which the state government said it intended to do through a special effort.
-
We found the discriminatory practice of separate pots for drinking water for Dalits in some worksites in Villupuram
-
Gram Panchayats need administrative support by way of Computer Operators and technical staff as well as more diesel for the GP vehicles.
-
Vigilance and Monitoring Committees must be formed in all the GPs so that there can be more accountable and transparent functioning
Orissa
-
Families are being registered on the basis of common kitchen and documentary proof is insisted upon.
-
Money was charged for photographs.
-
Low coverage of the population, especially female-headed households
-
Wages earned are between one-third to one-half of the minimum wages due to high productivity norms.
-
Continuing domination of contractors and their proxies through the institution of the VLL
-
Excessive use of machinery in the labour process
-
Irregularities in the maintenance of muster rolls
-
By the government’s own admission, there are departmental proceeding against 287 BDOs out of the total 314
-
Failure of VLLs to act in an accountable and honest fashion. VLLs tend to be Contractors or their proxies, indulging in many irregularities. The State Government has now promised to issue an order that Work Orders should not be given to VLLs.
-
Apart from the inadequacy of staff, there is the additional problem that VLWs are not under the BDO. The BDOs thus find it difficult to hold the VLWs accountable
-
Forcible confiscation of the job cards by VLLs from the workers
-
Needless insistence on keeping the material component very low, below the permissible 40 per cent
-
Lack of clarity on the level at which the labour material ratio is to be implemented
-
Very low wages due to high productivity norms, the Rourkela-based NIT is conducting time and motion studies to carry out revision in SOR
-
Inordinate delays in the payment of wages
-
In many parts of the state, esp. the Naxal-affected districts, works have not commenced at all and most people express surprise at the high level of utilization according to government figures
-
Several instances of SHGs implementing works but not receiving payment from the government
Maharashtra
-
There is a great deal of confusion between the MREGS and the NREGS. For this reason, the welcome provision for individual registration has come in conflict with the central requirement of household job cards.
-
It is very disappointing to see that despite the long experience, implementation of the NREGS is amongst the tardiest here.
-
After an initial registration drive, there has been no effort to ensure that workers, especially migrants and those unaware of the Scheme are registered. No particular efforts have been made to register single women and the elderly.
-
General awareness about the Scheme is limited to its existence, but not its particular provisions.
-
The proportion of those who have been issued job/identity cards remains very low.
-
People are not aware that is a demand driven scheme. The decision to start works is largely administrative, and not in response to the demand for work. Even where work has been demanded by aware citizens, it has not been provided.
-
Unemployment allowance has not been paid where work has not been provided after demand.
-
There has been no effort to involve people in the choice of works.
-
Child labour was evident on worksites.
-
Effective wage rates are well below the prescribed minimum. Productivity norms are such that they require very hard work and long hours to earn the minimum wage. There have been no efforts to revise the norms, in fact the administration appears to justify them and claims that earnings on the EGS are adequate.
-
Workers are not aware of the prescribed wage rates. Muster rolls are not available on site. Payments are inordinately delayed.
-
Workers expressed a desire for wages in kind. Particularly in the form of food grain. Work site facilities are inadequate. There are no crèches and there appears to be no desire to provide them.
-
By and large, the approach of the administration continues to be the same as with the earlier NREGS; there is no particular effort down the line to ensure that the basic principles of local employment for rural development by a transparent and democratic process are put into practice.
-
Preparation of estimates is a major bottleneck.
C. Main Recommendations
A unique and radical programme of this kind that marks a fundamental departure from previous approaches requires time to be fully or even substantially streamlined. Unfortunately, there is a sense of nervousness in the bureaucracy that has resulted in a narrow and parsimonious Scheme, which might ultimately squeeze the life out of it. This stems from pessimism of the developmental outcomes of this programme, suspicion surrounding its empowerment spin-off and changing balance of power and an overall climate of fiscal tightening and low spending. This gets reflecting in high productivity norms resulting in low wages; low coverage; reduced per capita entitlements through the definition of household on the basis of common kitchen, and absence of systems to engender application-driven implementation. Narrowing of the Scheme’s coverage and entitlements triggered by fiscal conservatism has led to extremely low utilisation of funds and aggregate expenditure. The administrative message that has gone down is zero tolerance for wrongdoing in this Scheme. This has stifled initiative where it was possible, and given rise to the tendency to do the minimum, erring on the side of conservatism. The economic and political significance of the Scheme must be repeatedly conveyed to change the present mindset.
Increase Spending: The main characteristic of the Scheme is sluggish and low spending rather than wastage and ‘leakages’. The lower bureaucracy seems to be in the grips of some kind of fear and lethargy, or simply a resistance to disturbing the pre-existing power equations at the local level. They are terribly worried about litigation and the transparency clauses. Panchayat Presidents complain about non-issuance of work orders by BDOs, JEs are worried about giving technical sanction. There is also insufficient staff. And of course, the rains started just after the first phase of registration. Nonetheless, the Governments need to loosen up, take the plunge and generate more work, after revising the SoRs.
Hire more Staff: Good bureaucrats can make a great deal of difference to the degree of success in implementation. In general, the lower bureaucracy, esp. at the Block level, tends to be far less proactive than the district officials. The existing government machinery is inadequate at the village and Block level to handle this Scheme. Far more technical persons are required and PRIs need more staff and funds of all types. In fact, staffing and spending are inter-related. Once there is adequate staff at the GP and Block level, the States can absorb more expenditure, and vice versa. It is important that the Rozgar Sevak be appointed and his/her duties spelt out. This is an important recommendation, because there is a genuine lack of staff at the block and the village level to administer the scheme, so even well meaning officials are handicapped, particularly in backward districts (where the Scheme is predominantly located at present — as it is, there is a shortage of staff there). Permissible administrative costs must reach 6 to 8 per cent of total costs.
Ensure Continuous Registration: It is unfortunate that even 7 months after introduction, there is such a huge backlog in registration and job card distribution. There is need for greater pace and simpler procedures. Documentary verification is an unnecessary impediment when the GP and gram sabha can be more effective, speedy and simple.
Honour Entitlements: If there is one word which can describe the present phase of the NREGS, it is parsimonious. Despite the fact that it is supposed to be a demand-driven programme, unrestrained by budgetary allocations, in practice there is an attempt to keep the entitlements extremely narrow. The four main entitlements under the NREGS are a 100 days of employment per rural household at minimum wages with some minimal worksite facilities (with unemployment allowance if work is not provided).
And yet, implementation falters on all key aspects, namely:
-
Payment of minimum wages through fair and simple productivity norms
-
Definition of household as nuclear (and hence per capita entitlements) and recognition of single member and female headed households
-
Provision of worksite facilities and work tools to the poor
-
Payment of unemployment allowance
This must change, and workers should receive their legally sanctioned due.
Implements should be treated as means of production and provided for under the material component.
Part Wages in Grain: Nearly all workers demanded part payment of wages in foodgrain (calculated at BPL prices), for household food security.
More Broad-based selection of works: A related issue is the great potential this Scheme holds for local area planning and development. The highly restricted definition of works robs PRIs and gram sabhas of initiative and results in an obsession with CCT/CPT roads and big ponds. It also neglects the provision of social infrastructure. Apart from social development, there should be announcement and wide publicity of a land improvement package that includes land leveling, farm bunding and a farm pond not only for the already permitted SCs, STs, IAY beneficiaries and land reform allottees, but also wholly or predominantly female headed farms. Works that are already permitted under the various Plan and non-Plan Centrally Sponsored Schemes should be automatically permitted. The period of greatest hunger and need fall in between post-sowing and pre-harvest Kharif. Unfortunately, these are also the high rainfall months of August – September, when large-scale earth works are not possible. It is very important to be more flexible in the selection of works for at least these months. There is a strong demand from women for individual beneficiary schemes and income generation activities like horticulture, sericulture, food processing, especially in the rainy months.
Demand driven approach: At the moment the Programme is not demand-driven. The GP should launch a campaign for spreading information about applications, and for the first two years at least, there should be a door-to-door survey every trimester. This should not only inform people about this crucial aspect of the Programme but also generate applications. The onus must rest in part on the government to provide 100 days of work.
Women’s issues: The most important interventions for women are the following: the payment of minimum wages; part payment of wages in grain (calculated at BPL prices); the issuing of individual job cards to women; registration of female-headed single/multi-member households; a door-to-door survey by the GP to ascertain the approximate time of year when they want work and application for it at the time; provision of worksite facilities and provision of Crèches with some meal Scheme; selecting women-friendly Projects and labour processes, a special land improvement package for farms headed by female farmers; etc. There is a strong demand from women for individual beneficiary schemes and income generation activities like horticulture, sericulture, food processing, especially in the rainy months.
The Elderly: The tendency to exclude those above 60 years of age must be discouraged. Productivity norms for the elderly must be no more than 75 per cent of the rate for males. In any case, the National Old Age Pension Scheme must be universalized, the amount of pension must be raised to Rs 500 per month and the eligibility simply be the attainment of 60 years of age.
APPENDIX OF QUESTIONNAIRES
-
Household Questionnaire Page 106-109
-
Meeting with Women Page 110-112
-
Interview with District Programme Coordinator and
Block Programme Officer Page 113-116
4. Worksite Questionnaire Page 117-127
5. Panchayat Officials Page 128-129
6. Village Questionnaire Page 130-132
|
Yüklə 3.85 Mb.