A Note from the TSI

NREGS PLAN 2008-09 to 2012-13

ANGUL DISTRICT ORISSA

DISTRICT PLANNING OFFICE , ANGUL. 2

A Note from the TSI

Preparation of the NREGS Plan for Angul district has been a challenging job as the present practices, norms, and limitations do not seem to be favourable for this. The TSIs have been informally advised by the government to prepare this Plan on the basis of the requirement @Rs.100 x 100 days/HH/annum according to the number of job-demanding card-holder HHs. However, PRIA sees that there are a number of other things that need to considered; and that although the present limitations do not favour for preparation of a comprehensive NREGS Plan, still a Plan can be prepared that could provide clues in that direction. The present Plan is an attempt for this, and all the statistics, unless otherwise quoted/mentioned, have been taken from the MIS data of NREGS website.

PRIA-Orissa

PRIA is an International Centre for learning and promotion of participation and democratic governance 3

CONTENTS

Chapter Page No.

Introduction 3 Situation analysis 3 Status of 100-days job/family/year 11 Analysis of asset creation status 12 Utilization status of NREGS fund 14 Annual Plan & Perspective Plan 15 Findings of a CDS-study 26 Conclusion 31

1. Introduction:

Implementation of National Rural Employment Guarantee Act(NREGA) in Orissa started from February 2006 in 19 Districts of Orissa in 1st phase, extended in the 2nd phase to 5 more districts in April 2007, and later in 3rd phase to all districts from April – 2008. Angul district was included under the Act in 2nd phase from April-2007. This Act primarily intends for assured employment generation for minimum 100 days in a year per household(HH), and the secondary objective include conservation of water and creation of assets, etc.. Under this Act, employment for minimum 100 in a year is the

PRIA is an International Centre for learning and promotion of participation and democratic governance 4 constitutional right of the job-card holding households, and if the administration fails to ensure this, then the card-holders are entitled for unemployment allowance.

There are various norms which restrict the implementation procedure of this scheme to but select avenues. Further, the focus is also changing in the context of project category. There is a need of effective, transparent & accountable governance system, which is lacking at the present making things more complicated sometimes. On the other hand, where the authorities are sincere, the demand side may not necessarily be so encouraging. In Angul district, various such factors have their reflections in the NREGS-related experiences so far, and the present Plan shall be based on that.

2. Situation Analysis:

2.1 Registration status:

Under the provisions of the NREGA, the households need to get registered first following which they get job cards on the basis of their eligibility. Following is the status of job- card holders in the district as on 20-11-2008:

Table-1 No. of Job Card Blocks Registered Issued House Hold Persons

ANUGUL 23620 52922 23590 ATHMALLIK 18238 46590 18220 BANARPAL 19191 59150 18905 CHHENDIPADA 25783 58867 25599 KANIHA 21862 65609 21787 KISHORENAGAR 18443 46139 18316 PALALAHADA 21001 63844 20787 TALACHER 11850 31522 11816 Total 159988 424643 159020

2.2 Turnover of demand for jobs:

NREGS is essentially a demand-driven programme, and cannot proceed in case the target groups have no demand for jobs under the scheme.Table-2 suggests that whereas during 2007-08, the turnover(estimated in %age of the job-demanding card-holder HHs out of the total card-holding HHs) was highest in Pallahada Block followed by Kishorenagar, Kaniha, and Athmallik Blocks; Banarpal had the lowest turnover. During 2008-09(as on PRIA is an International Centre for learning and promotion of participation and democratic governance 5

20-11-2008), Pallahada Block retained its former status, but Angul Block had the lowest turnover.

Table-2 Turnover in 2007-08 Turnover as on 20-11-2008 Block (in %age) (in %age) Angul 11.44128868 6.86731666 Athmallik 24.95609221 7.48079034 Banarpal 7.934408887 7.574715684 Chhendipada 15.87562014 10.38321809 Kaniha 25.59324368 11.59406986 Kishorenagar 26.81262284 15.55470627 Pallahada 36.8259008 22.51888199 Talcher 15.35206 7.27826676

Trends in employment demand

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2.2.1 Block-wise reflections:

2.2.1.1 Angul Block:

%age of job-demanding Name of the GP %age of job-demanding HHs in 2007-08 HHs as on 20-11-2008

ANGARBANDHA 6.418485237 5.006418485

ANTULIA 20.155902 5.79064588 BADAKANTAKUL 19.24798568 17.81557744 BADAKERA 4.740904079 4.851157663 BALANGA(NEW) 18.82556131 4.490500864 BALASINGA 4.804045512 0 BALUATAKATA 11.28712871 3.663366337 BANTALA 10.18922853 4.80349345 BARAGAUNIA 8.465608466 11.50793651 BASALA 7.299270073 4.744525547 BEDASASAN 11.97411003 12.94498382 CHHELIAPADA 10.12269939 0 DHAKUTA(NEW) 8.1232493 23.52941176 GADATARASH 25.23510972 15.98746082 INKARBANDHA 8.091603053 0 JAGANATHAPUR 21.45454545 14.90909091 KANGULA BENTAPUR 1.766437684 0 KHALARI 1.251564456 3.879849812 KHINDA 22.39789196 11.7259552 KOTHABHUIN 19.57831325 8.584337349 KUMURSINGHA 8.090185676 1.98938992 MANIKAJODI 10.63122924 5.481727575 MATIASAHI 5.841121495 1.518691589 NANDAPUR 5.730659026 9.360076409 POKATUNGA 7.19844358 5.447470817 PURNAKOTE 16.8190128 16.27056673 RANTOLEI 2.582159624 2.112676056 SANKHAPUR 6.944444444 2.777777778 SARADHAPUR 25.13863216 1.478743068 TAINSI 10.37037037 1.375661376 TALAGADA 0.661157025 0.991735537 TIKARPADA 41.40752864 21.44026187 Total 11.44128868 6.86731666

Thus, Balasinga, Chheliapada, Inkaribandha, and Kangula Bentapur GPs need attention in this Block.

2.2.1.2 Athmallik Block:

AIDA 39.92848629 12.27651967 AMBASARMUNDA 35.38306452 3.931451613

BASUDEVPUR 22.63513514 0 JAMUDOLI 20.73732719 7.680491551 KAMPALA 25.72741194 0 KANDHAPADA 13.41301461 2.390438247 KANTAPADA 16.48106904 12.47216036 KIAKATA 34.12371134 4.536082474 KRUTIBASPUR 43.26241135 13.19148936 KUDAGAON 23.46521146 3.410641201 KURUMTAP 20.96153846 0 LUHASINGHA 20.53422371 0.834724541 LUNAHANDI 25.47468354 7.120253165 MADHAPUR 13.88888889 9.143518519 MAIMURA 19.19504644 8.359133127 NAGAON 23.60922659 33.37856174 PAIKASAHI 14.79374111 13.65576102 PEDIPATHAR 20.0280112 23.66946779 PURUNAMANITRI 25.88075881 7.859078591 SANAHULA 34.81781377 2.631578947 SAPAGHAR 16.66666667 3.205128205 TAPDHOL 20.06920415 3.633217993 THAKURGARH 28.59362859 6.682206682 TUSAR 22.10414453 2.125398512 Total 24.95609221 7.48079034

GPs like Basudevpur, Kampala, Kurumtap, and Luhasingha need attention in this Block.

2.2.1.3 Banarpal Block:

BADAKERAJANGA 3.663003663 9.706959707 BALARAMPRASAD 6.824925816 10.08902077 BAULIGARH 7.530864198 9.50617284 BHOGABERENI 19.31818182 7.272727273 BONDA 6.703910615 9.124767225 BUDHAPANKA 14.3864598 4.513399154 FULAPADA 6.385169928 3.604531411 GARHSANTRI 6.953223767 5.436156764 GOTAMARA 8.258258258 1.201201201 JARASINGA 6.502242152 2.578475336 KANDASAR 6.214689266 0 KANJARA 11.0542477 11.46366428 KARADAGADIA 8.639705882 11.02941176 KUKADANGA 5.918057663 19.27162367

KULAD 0 0 KUMUNDA 3.826530612 2.933673469 KURUDOL 8.005822416 7.278020378 MAHIDHAR PUR 11.13537118 13.20960699 NUAHATA 7.692307692 4.428904429 SANKERJANGA 7.158836689 13.64653244 SANTARAPUR 10.48136646 8.850931677 SHAKOSINGHA 8.425720621 18.73614191 TALAMUL 2.543142598 7.266121708 TUBEY 12.71975181 4.343329886 TULASIPAL 5.174353206 1.687289089 Total 7.934408887 7.574715684

GPs like Kandasara and Kulad need attention in this Block.

2.2.1.4 Chhendipada: %age of job-demanding Name of the GP %age of job-demanding HHs in 2007-08 HHs as on 20-11-2008

BAGEDIA 11.328125 11.5234375 BAHALSAHI 18.69767442 9.76744186 BALIPATA 18.16652649 6.644238856 BARAPADA 31.46292585 21.84368737 BARASAHI 12.2847302 11.48105626 BASANTAPUR 27 10.2 BRAHMANBIL 9.572072072 14.86486486 CHANGUDIA 15.59507524 2.735978112 CHHENDIPADA 6.524633822 1.398135819 DURGAPUR 6.145966709 2.688860435 JARAPADA 16.47058824 2.857142857 JERANG DEHURISAHI 7.780612245 2.551020408 KAMPASALA 30.0407332 16.08961303 KANALOI 24.96307238 11.816839 KANKAREI 35.09513742 45.66596195 KATADA 11.41141141 30.03003003 KORADA 22.23451327 6.194690265 KOSALA 14.75548061 18.80269815 KUKURPETA 17.55102041 3.265306122 KUSAKILA 13.88888889 0.308641975 MACHHAKUTA 27.50352609 17.20733427 NATADA 17.63527054 14.62925852 NISA 26.51515152 0 NUAGAON 12.42312423 12.54612546 OGI 7.056798623 5.335628227 PARA 2.96735905 0.445103858 PARANGA 6.677265501 4.610492846

PATAKAMUNDA 17.10239651 10.67538126 PATRAPADA 16.02708804 27.76523702 RAIJHARAN 8.498583569 2.83286119 SIMILIPAL 13.85902031 2.270011947 T.KODASAHI 23.43283582 10.44776119 TANGIRI 18.19221968 16.24713959 TUKUDA 5.925925926 4.148148148 Total 15.87562014 10.38321809

GPs like Nisa and Para need attention in this Block.

2.2.1.5 Kaniha: %age of job-demanding Name of the GP %age of job-demanding HHs in 2007-08 HHs as on 20-11-2008

Arkil 48.23321555 10.42402827 Badagunduri 46.7404674 7.503075031 Badatribida 37.51600512 25.86427657 Bajrakote 17.31909846 9.015421115 Balipasi 27.41691843 13.36858006 Bijigol 11.26927639 1.660735469 Biru 43.26530612 29.3877551 Burukuna 16.10859729 8.054298643 Dalaka 37.54889179 6.518904824 Derang 18.78402904 6.442831216 Gandamala 11.93633952 20.82228117 Hanumanpur 53.59565807 20.08141113 Hariharpur 4.444444444 11.25 Jarada 25.30120482 4.337349398 Kakudia 36.21134021 21.2628866 Kamarei 51.08005083 20.45743329 Kaniha 4.33604336 5.555555556 Karnapal 31.79433368 6.29590766 Kulei 18.65828092 18.23899371 Kuluma 16.85236769 4.038997214 Parabil 20.54347826 10 Rengali 6.593406593 14.1025641 Samal 22.6039783 10.48824593 Sanatribida 15.86368978 8.578143361 Susuba 19.35146444 12.13389121 Talapada 63.50482315 11.89710611 Total 25.59324368 11.59406986

Bijigol and few other GPs may need attention in this Block though the overall situation seems more or less satisfactory.

2.2.1.6 Kishorenagar:

AMBAPAL 25.26501767 27.03180212 ANGAPADA 25.36231884 9.057971014 BAMUR 23.28458943 25.42182227 BILEINALI 25.6381798 30.18867925 DHADARPAL 39.8540146 16.35036496 DHAURAPALI 30.40103493 8.667529107 GAON BOINDA 22.26179875 5.075690116 HANDAPA 9.862385321 10.85626911 HIMITIRA 32.77216611 16.16161616 JAIRAT 43.81107492 19.05537459 JAMUNALI 27.86489747 21.10977081 JHARBERANI 36.75889328 15.41501976 KADALIMUNDA 39.95510662 13.69248036 KANTEIKULIA 45.2211127 15.2639087 KATARANGA 15.05190311 16.26297578 NAKCHI 12.04437401 9.350237718 NUNUKAPASI 14.66876972 12.85488959 OSKAPALI 30.85250338 20.43301759 RANIAKATA 32.55813953 9.76744186 SANJAMURA 32.89597001 26.89784442 URUKULA 29.39297125 10.06389776 Total 26.81262284 15.55470627

The situation in this Block seems more or less satisfactory.

2.2.1.7 Pallahada: %age of job-demanding Name of the GP %age of job-demanding HHs in 2007-08 HHs as on 20-11-2008

Allori 17.70992366 15.26717557 Badasada 36.10662359 10.17770598 Balipasi 64.87179487 24.1025641 Bandhabhuin 15.7239819 25.67873303 Batisuan 36.85393258 22.13483146 Chasagurujang 48.36309524 33.03571429 Dimiria 30.03492433 24.44703143 Injidi 57.51920966 25.90559824 Iswarnagar 42.11711712 16.32882883 Jharabeda 45.62211982 31.22119816 Karadapal 44.45564516 21.77419355 Khamara 13.73773417 2.943800178

Khemala 31.59041394 16.88453159 Kunjam 59.59252971 37.35144312 Munduribeda 77.05779335 37.82837128 Nagira 33.90070922 6.666666667 Namapashi 27.34899329 29.69798658 Nijigada 12.71393643 13.93643032 Pabitrapur 40.32258065 37.34491315 Parachhata 34.07601573 17.43119266 Pechamundi 30.76923077 27.08333333 Rajadang 54.47619048 33.71428571 Rohila 52.52062328 36.66361137 Saida 40.50179211 32.79569892 Sankhamur 25.53925798 9.749784297 Seagarh 22.27011494 28.59195402 Total 36.8259008 22.51888199

Pallahada continues to be the leading Block in NREGS.

2.2.1.8 Talcher:

BADAJORADA 10.36468 2.30326296 BANTOL 7.334526 5.54561717 BRAJANATHPUR 29.79167 11.0416667 DANARA 5.787037 3.93518519 DERA 11.65644 8.28220859 DHARAMPUR 16.1442 15.5172414 GHANTAPADA 7.317073 5.57491289 GOBRA 22.00521 2.99479167 GOPAL PRASAD 17.85714 12.2670807 GURUJANG 20.82585 8.79712747 GURUJANGULI 25.10345 15.3103448 HENSMUL 12.36443 0 JAGANATHPUR 6.131078 1.26849894 KALAMCHUIN 24.13333 7.86666667 KANDHAL 13.50763 0 KANKILI 7.169118 4.22794118 KARNAPUR 22.19873 11.627907 KUMUNDA 19.9637 20.6896552 PADMABATIPUR 22.74436 6.39097744 SANTHAPADA 0 0 TENTULEI 10.04942 3.29489292 Total 15.35206 7.27826676

GPs like Hensamula & Kandhal need attention in this Block. However, it is a fact that the coal business has diverted people from dependency on NREGS in many areas.

3. Status of 100-days job/family/year:

Table-3 indicates that the number of families/households availing minimum 100 days jobs per year is negligible. This is either due to lack of demand, or lack of jobs under NREGS:

Table-3 Block 2007-08 2008-09 ANUGUL 4 1 ATHMALLIK 2 0 BANARPAL 31 3 CHHENDIPADA 7 1 KANIHA 46 1 KISHORENAGAR 4 1 PALALAHADA 10 5 TALACHER 5 0 Total 109 12 (As on 20-11-2008)

4. Analysis of asset creation status:

Table-4 would indicate that Angul district could not or did not utilize the scope of asset creation under the following categories:

1. Flood control 2. Conservation of water, and water harvesting structures 3. Drought proofing 4. Irrigation canal 5. Irrigation facility to SC/ST/IAY 6. ‘Other works’

Even the achievements in renovation of traditional water harvesting structures have been negligible.

Table-4 NO. OF WORKS Renovation Water of Irrigation Flood Rural Conservation Drought Irrigation Land Other Total Traditional Facilities To Control Connectivity And Water Proofing Canals development works Water SC/ST/IAY/LR Harvesting Bodies 2007- 08 ANGUL 0 123 0 1 0 0 0 0 0 124 As on 20-11- 08 0 1 0 0 0 0 0 0 0 1 2007- 08 State 20 4593 394 1736 347 51 84 0 205 7430 As on 20-11- 08 4 839 240 397 20 17 48 1 35 1601

(As on 20-11-2008)

5. Utilization status of NREGS fund:

Tables 5 & 6 would indicate that during 2007-08, Pallahada Block had the highest %age of utilization and Angul Block the lowest. During 2008-09(as on 20-11-2008), both the Blocks appear to have retained their former status.

Table-5 Utilization status in 2007-08 Total Total %age of Block Availability expenditure utilization

ANUGUL 189.88906 104.4965 55.03028979 ATHMALLIK 245.81476 184.11935 74.90166579 BANARPAL 161.01722 110.23948 68.46440399 CHHENDIPADA 253.17546 176.58284 69.747218 KANIHA 360.31682 304.09367 84.39619055 KISHORENAGAR 213.50117 154.75137 72.48268007 PALALAHADA 227.20342 239.95844 105.6139208 TALACHER 128.90396 98.2849 76.24661027 Total 1779.821867 1372.52656 77.11595107

Table-6 Utilization status as on 20-11-2008

Total Total %age of Block Availability expenditure utilization ANUGUL 183.94116 47.83153 26.00371227 ATHMALLIK 119.28466 37.71895 31.62095612 BANARPAL 91.16902 50.95193 55.88732883 CHHENDIPADA 134.40765 83.18956 61.89347109 KANIHA 139.059 74.47169 53.55402383 KISHORENAGAR 122.27095 68.72423 56.20650694 PALALAHADA 157.27483 129.3809 82.26421227 TALACHER 61.64415 32.63631 52.94307732 Total 1009.051423 524.90509 52.01965708

Trend in utilization of NREGS fund

n 120 o i t 100 a z i

l 80 i t

g 20 a 0 % A L R R A L K A I E D A A D U H L P I H A G A G L R C P N H A U I A A A A A N N D M L N L K E A N H A A R A E T T B L O H A A H H P S I C Block K 2007-08 As on 20-11-2008

6. Annual Plan and Perspective Plan:

Presently the Blocks are preparing only annual plans for NREGS, based on latest palli sabha resolutions. Fresh resolutions are seeked each year, and projects pending from the previous year are ignored if fresh resolutions no more enlist them. It is thus not possible for the TSI at present to prepare a perspective plan completely on this basis particularly when palli sabha resolutions may alter the plans next year.

The following rough estimation(table-7) indicates that the annual financial requirement for the job-demanding HHs in the district is Rs.4620.50 lakhs if we ignore the fact that the number of families actually availed 100 days job per year is negligible: Table-7 Block No. of job-card No. of HHs Financial target @Rs.100 x holders demanding 100 days x No. of job- jobs(2007-08) demanding HHs ANUGUL 23590 3260 32600000 ATHMALLIK 18220 5954 59540000 BANARPAL 18905 2070 20700000 CHHENDIPADA 25599 4957 49570000 KANIHA 21787 6858 68580000 KISHORENAGAR 18316 5804 58040000 PALALAHADA 20787 14825 148250000 TALACHER 11816 2477 24770000 Total 159020 46205 462050000

Accordingly, Angul district would require approximately Rs.23100 lakhs during 2008-09 to 2012-13.

However, the Plan(table-8) prepared by the Blocks for the year 2008-09 project an estimation of Rs.44315 lakhs though it is very obvious that either there would be a spill over of this requirement in the next few years, or the Plan would but be partially implemented:

Table-8 Block Core NREGS Plan(Blocks/GPs): No. of projects sanctioned Total cost in lakh rupees

All CC Water Irrigation Renovat Flood Firm Afforestation and weather road conservation canals ion of control pond plantation road and water including tradition & harvesting micro- al water protectio projects and body, n minor and projects desiltin g Angul 385 315 222 175 332 92 592 210 6604.00 Banarpal 246 198 79 123 192 76 377 129 3894.00 Chhendipada 369 260 218 207 333 115 550 149 6330.00 Athmallik 641 323 316 273 646 219 1215 287 3667.00 Kishorenagar 541 298 208 276 243 136 1088 189 7423.00 Pallahara 296 276 173 186 279 98 640 ---- 5268.00 Kaniha 270 186 224 205 265 138 251 123 5140.00 Talcher 359 447 199 154 273 83 331 112 5990.00 Grand total 3107 2303 1639 1599 2563 957 5044 1199 44315.00

On the other hand, NREGS programmes of Line Departments have differential prospects. For instance, the Horticulture Department does not see much need of NREGS activities for its purpose; hence it has not submitted a 5-year plan for the same. However, some irrigation departments seem to have a higher prospect because of their regular maintenance activities. Forest Department carried out NREGS work mostly for Silvicultural operations, etc..

Table-9: NREGS Perspective Plan: Line Departments

Year, and cost in lakh rupees

Department 2008-09 2009-10 2010-11 2011-12 2012-13 DFO, Angul 30 20 20 20 20 DFO, Athmallik 650 400 350 300 300

DFO, Deogarh 134.85 100 100 100 100

DFO, Satkoshia WL 252.15 277.365 305.6915 334.0282 367.431

Minor Irrigation 48 100 125 140 163

Angul irrigation division 72 50 50 50 56.38

Sericulture 15.425 19.76 24.095 24.095 24.095

Soil Conservation 394.73 272.02 263 256 250

Horticulture 30.85

Total(Departmental) 1628.005 1239.145 1237.787 1224.123 1280.906

The above Plan does not include activities(like, conversion of brush wood phadis into semi- permanent houses) expected to be covered under NREGS by the Angul KL Division as the Panchayati Raj Department does not see the same conforming to NREGS norms.

6.1 Details of NREGS Plan for Line Departments:

Table-10: Horticulture Activities Cost in rupees Green fencing 24740 Farm pond 165300 Nursery development 1613600 Development of transit 692900 nursery(Athmallik)

Development of transit 43200 nursery(Bamur) Trench fencing at 246400 Pallahara Farm Development of Farm 259700 road Total 3085840

Table-11: Soil Conservation Financial year Physical target(Activity Financial target proposed ), scheme –wise ( Estimated cost) ( wherever applicable 1 2 3 2008-09 NREGS 1. W.H.S = 5 Nos 31.35 1. Farm Pond = 747 Nos 344.45 2. Plantation = 125.00 Ha 18.93 Sub Total 394.73 2009-10 NREGS 1. Farm Pond – 500 Nos 250.00 1. Plantation = 100.00 Ha. + 22.02 125.00 ha. (M) Sub Total 272.02 2010- 11 NREGS 1. Farm Pond – 500 Nos 250.00 2. Plantation = 225 Ha. (M) 13.00 Sub Total 263.00 2011-12 NREGS 1. Farm Pond – 500 Nos 250.00 3. Plantation = 100 Ha. (M) 6.00 Sub Total 256.00 2012-13 NREGS 1. Farm Pond – 500 Nos 250.00 Sub Total 250.00

Table-12 Angul Irrigation Division Financial Scheme Physical Target Financial Target (Est. Year Cost) in lakh rupees 2008-09 NREGS Renovation of minor, 55.00(Derjang project) sub.-minor and flood protection works

17.00(Aunli project)

2009-10 NREGS Renovation of minor, 50.00 sub.-minor and flood protection works

Table-13 Sericulture Name of Unit 2008-09 2009-10 2010-11 2011-12 2012-13 Total the cost Phy- Financial Phy. Financial Phy. Financial Phy. Financial Phy Financial Phy Financial Activity sical . .. New Tasar 30,850 50 15.425 50 hec. 15.425 50 15.425 50 15.425 50 15.425 250 77.125 host hec. hec. hec. hec hec Plantation 8670 - - 50 hec 4.335 100 8.670 100 8.670 100 8.67 350 30.345 Maintenan hec hec hec hec. ce of food plants

Table-14 DFO, Angul Financial Year Physical target ( Activity Financial target proposed), Scheme-wise ( Estimated cost) ( wherever applicable) Lakh 1 2 3 2008-09 NREGS -92 projects 30.000 (Silvicultural operation, water body structure & Repair of Road)

NREGS -20 projects 20.000 (Silvicultural operation, water 2009-10 body structure & Repair of Road)

NREGS 20 projects 20.000 (Silvicultural operation, water 2010-11 body structure & Repair of Road)

Table-15 DFO, Satkoshia Wild Life Division

Financial Year Physical target (Activity proposed), Financial Scheme wise (where ever target applicable) (Estimated cost

1 2 3 2008-09 NREGS 1 Silvicultural operation 2050000 2. Creation of water bodies, WHS, 15600000 Game tank 3. Repair & Maintenance of Forest 3915000 Road 4. Culvert/ Causeway / Bridges 2300000 5. Soil moisture conservation 1350000 Total 25215000

2009-10 NREGS 1 Silvicultural 2255000 operation 2. Creation of 17160000 water bodies, WHS, Game tank 3. Repair & 4306500 Maintenance of Forest Road 4. Culvert/ 2530000 Causeway / Bridges 5. Soil 1485000 moisture conservation Total 27736500 2010-11 NREGS 1 Silvicultural 2480500 operation 2. Creation of 18876000 water bodies, WHS, Game tank 3. Repair & 4796150 Maintenance of PRIA is an International Centre for learning and promotion of participation and democratic governance 25

Forest Road

4. Culvert/ 2783000 Causeway / Bridges 5. Soil 1633500 moisture conservation Total 30569150

2011-12 NREGS 1 Silvicultural 2505305 operation 2. Creation of 20763600 water bodies, WHS, Game tank 3. Repair & 5275765 Maintenance of Forest Road 4. Culvert/ 3061300 Causeway / Bridges 5. Soil 1796850 moisture conservation Total 33402820 2012-13 NREGS 1 Silvicultural 2755835 operation 2. Creation of 22839960 water bodies, WHS, Game tank 3. Repair & 5803341 Maintenance of Forest Road 4. Culvert/ 3367430 Causeway / Bridges 5. Soil 1976535 moisture conservation Total 36743101

The DFO, Deogarh proposed the following activities under NREGS for implementation in the Pallahada sub-division:

1. Silvicultural Operation in Joint Forest Management mode. 2. Repair to Forest road. 3. Soil & Moisture Conservation. 4. Water Harvesting Structure in Forest Area. 5. Boundary maintenance of RF & DPF 6. Subsidiary Silvicultural Operation. 7. Elephant Prove Trench. 8. Fire Line Tracing to prevent forest Fire.

Details of other Department’s perspective plan on NREGS are not available. However, what is important to note is that whereas the comparatively low utilization of NREGS funds and low turnover of demand for jobs suggest a substantially lower financial achievement under NREGS in the district that planned, that does not mean dearth of jobs for the card-holders. Rather, the question may be the financial feasibility of the jobs offered under NREGS, for the job-card holders.

7. Findings of a CDS study:

Centre for Development Studies(CDS), a non-government organization based at Banarpal had been assigned a study on NREGS under the Orissa Civil Society Poverty Programme implemented in Orissa by PRIA. Accordingly, four GPs of Banarpal block were selected by CDS for this purpose, and sample study of 80 HHS were conducted in 2 villages of each GP & 10 HHs of each village. It was decided to study the implementation status of NREGA in this area from April’08 to Sept’2008. The information gathered under the study corresponded to the following:

 Non acceptance of verbal work demand  Non issue of receipts against work demand application  No allocation of works within 15 days  Refusal to provide work by the Panchayat in rainy season  Expressing provision of less payment for the work after issue of C2 notice, so that people are loosing interest from NREGA works.  Some GPs told people after serving C2 notice, to work when they would call, unfortunately this did not happen and the people could not work & lost their interest.  In another GP even C2 notice has not been served although 15 days passed after work demand and they are telling that people will collect the notice from GP Office and there is no provision to serve it under the Act.  Unemployment allowance has not been paid where work has not been provided within 15 days.  Some people have no Account no., and are getting their money through other’s accounts.

 In some places payment has yet to be made although more than 2 months passed.  Out of 4 selected GPs, payment has not been made in 3 GPs within 15 days.  Person days of work & payments are not mentioned properly in the job cards.  Worksite facilities are not properly ensured in 3 GPs.  No payment has been made for the use of own equipments.  There is mismatch in the information provided by GP, Block & District authorities.  GP-, Block- & District administration are telling that all facilities has been provided to the labours, but it is not the reality.  Muster Roll is not being used at work sites, but plain papers are generally used, whereas the authorities are telling that it is used as per rule.  Labours are unhappy with the 5th point of C2 notice of the Orissa Govt., which obstructs the labour permanently from claiming unemployment wage and future work demand for not joining the work within 3 days.  Gram sathis are not available generally at the worksite. (Courtesy: CDS)

Similar studies elsewhere in the state/country also suggest that various irregularities in the NREGS programme are a major reason for depriving the needy people of their rights. Among these, the findings of the study by Centre for Science & Environment(CSE) are quite relevant, as quoted below:

“ A comprehensive assessment of the National Rural Employment Guarantee Scheme (NREGS) by the Centre for Science and Environment (CSE), Delhi, says that the scheme has huge potential for regenerating the village economy in India, but only if its focus remains on the creation of productive assets.

The National Rural Employment Guarantee Act (NREGA) was implemented in select districts in the country two years ago, and is slated to cover all districts from April 1, 2008. The CSE study, ‘NREGA: Opportunities and Challenges’ looks at the Act’s implementation across nine states and 12 districts. The objectives of the study were to find out whether the NREGA was being used for productive asset-creation, to gauge the development potential of the Act, and to examine the village planning process crucial to the Act’s success.

Over the two years that it has been in existence, the NREGS has already created half-a-million assets and provided jobs to around 3% of India’s population, according to the study.

More than 10,000 villages are implementing the NREGA. During 2006-07, each village spent an average of Rs 900,000 to create productive assets like water conservation structures. In the last two years, each district has spent around Rs 44 crore.

However, the report says, if it is to reach its potential of changing the lives of 45 million rural households, it must be ‘strengthened and revamped to provide not just wages for work done but “work” that will make ecological regeneration possible’.

Key findings

 Creating productive assets

Though the focus of the scheme is on job-creation, there is a drop in demand for employment under it. The report attributes this to imperfections in the scheme itself, not to the fact that people in rural India do not need jobs.

Crucially, governments have failed to articulate the Act’s development potential, it says. The focus should have been more on the real impact of the scheme on local development through productive asset-creation, not so much on job-creation.

Most NREGS money, the survey found, has gone towards road construction projects instead of works related to water conservation and harvesting that are listed as priorities under the NREGA. Of the 27 states where the NREGA has been implemented, only five have made substantial allocations to water conservation. During 2006-07, Andhra Pradesh alone accounted for around 67% of the country’s total water conservation works under the NREGS.

The report gives the example of Hiware Bazar village in Maharashtra which has used the state’s Employment Guarantee Scheme (EGS), predecessor to the NREGA, over the past 14 years to increase per capita income by 16 times. It gave top priority to water conservation structures and reforestation and the village has since become a water-surplus one from a water-scarce one. It now witnesses reverse migration from urban areas for better economic opportunities.

The emphasis on road construction rather than water conservation, the study says, is because irrational wage calculations have made water conservation projects less lucrative. Under the ‘task rate wage payment’, a worker gets paid based on the task completed. This leads to anomalies such as the case of Sakhi Soren, a daily wage earner in Surma village, Pakur, who worked on digging a pond for 13 days and should have got Rs 996.84 (basic minimum wage). But he only got Rs 750 because payment was done according to the amount of earth he dug, which was less than the stipulated 100 cubic feet per day. Going by the wage calculation, he would have got the basic minimum wage constructing a road, as road construction has a different wage rate based on per day wage payment without the attached task rate conditionality.

 Bad planning, no maintenance

The scheme is also plagued by incomplete and abandoned works, and lack of maintenance of completed works.

Out of a total of 769,582 works under progress, only 158,277 (20.56%) have been completed. Till August 2007, only about 14% of water conservation works under the NREGS had been completed.

The study found that bad planning in the case of water conservation structures puts a large number of created assets into disuse. For instance, water harvesting structures are built without any provision for catchment protection. In Kanchanpur village in Sidhi district, three huge tanks were built under the NREGS but their catchments are in forest areas. Most catchments are degraded and the forest department doesn’t allow anyone to treat them, a social worker told the CSE team. So, in two years, the tanks silt up.

On top of this, ‘maintenance work’ is not a permissible activity under the NREGA. ‘This alone has the potential to undo whatever has been achieved,’ says the report. It also points to how it becomes a problem for districts that already have several water harvesting structures and want to use NREGS money for maintenance, but cannot do so.

 Village communities are being bypassed

Most states have not devolved the necessary function, funds and functionaries to panchayats for effective implementation of the NREGA.

Though panchayats are nodal bodies in the NREGA, they are fast turning into implementing agencies without any say in planning. The complex and cumbersome implementation procedure, which takes up to four months for a project to be approved and funds released, causes huge delays. There is also a shortage of technical staff at the panchayat level to evaluate works. All these difficulties lead to district line departments taking over the role of the panchayat for faster plan approval and completion; as a result, panchayats end up merely maintaining records.

Recommendations

The CSE study’s recommendations include:  Measure not just the wage provided but also the asset created and its effectiveness. This will make village development, through productive asset- creation, the primary objective.

 Make wage payment people- and development-friendly; provide a premium wage for development programmes that will ensure that the work done is completed and is useful.  Continue emphasising water conservation works under the NREGS by providing additional incentives.  Make the completion and maintenance of works under the NREGA mandatory.  Give importance to forestation under the NREGA by linking it to other forestry programmes.  Do more to strengthen village-level planning and decision-making by revamping current operational structures.  Equip panchayats with the necessary personnel and funds for effective implementation of the scheme. (Source: http://infochangeindia.org/200804027009/Poverty/Books- Reports/NREGS-must-focus-on-creating-productive-assets-CSE-study.html)

The CDS study has the following recommendations for better implementation of the NREGS:

 Panchayat is depending on the Block for the implementation of 50% work allocated to them, they should be empowered to do it independently.  Act & guide line in Oriya has not been provided to the GP Office and they should get immediately it for their reference.  GP is depending on the Block administration for responsibilities ranging from measurement of work to the issue of cheque, which is the main reason of delay payment, which is a discouraging factor for the people; and this should be taken care of.  Weekly payment should be ensured for creating interest among the people.  The records need to be properly maintained in the GP.  Worksite facilities should be ensured properly with immediate effect.  Payments should be made for use of own equipments.  Sou moto discloser of NREGA works, as provided for in the NREGA, at GP, Block- & District levels is hardly taking place. This should be taken care of..  Proper planning to be made for providing works throughout the year even in the rainy season.  Faulty C2 notices should be withdrawn immediately.  In the industrial belts, plantation should be encouraged under NREGA.  The NREGA works should be planned looking to the real need & geographical situation of the area instead of preparing it at State level.  The social audit conducted by the govt. departments is simply verification of Muster Roll by the same persons doing the mistakes. It should not happen, and should be conducted by neutral bodies.  Gram sathis should remain present at each & every work site.  Use of Muster Roll should be mandatory at worksite. PRIA is an International Centre for learning and promotion of participation and democratic governance 31

 The BDO is often too busy to devote adequate time for NREGS, and as such a special post should be created for the overall supervision of NREGS activities in the Block. (Courtesy: CDS) Whereas the government has taken few initiatives recently for timely payment of wages, adequate staff strength is very much necessary for smooth execution of the work. Further, it is also a fact that some of the line departments have either alternate or more comfortable sources of funding than NREGS, or are not willing to take up NREGS activities because of the stringent norms or limitations of the procedures. Moreover, on the demand side it should be studies to what extent the norms are actually feasible in public interest. For instance, a marginal land-holder would loose his/her land in case farm pond is created there; hence he/she might reject the offer.

8. Conclusion:

NREGS is one of the boldest pro-people initiatives of the government, but the norms, procedures, and strategies thereof need a thorough review so as to make the objectives fulfilled properly.

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PRIA is an International Centre for learning and promotion of participation and democratic governance