JOURNEY

DEBMALAYA NANDI

ACTIVATING PANCHAYATS THROUGH MGNREGA

Implementing MGNREGA in Introduction its fullness is a movement — to establish local HE MAHATMA GANDHI NATIONAL RURAL democracy and instruments Employment Guarantee Act (MGNREGA) is of local governance, considered to be the foundation for establishing local democracy. The Act itself is empowering for local honour local wisdom governance and the provisions of the Act strongly and knowledge, promote promote power decentralization to panchayats and power decentralization to villages. The Act honours local knowledge and wisdom, panchayats and encourage and its operational structure is based on the principles of decentralized and participatory decision-making. participatory decision-making. T Jharkhand’s experience The provisions of decentralized planning and implementation processes warrants telling. embedded in MGNREGA have great power to establish the instruments of local governance and activate gram sabhas (GSs) and Panchayati Raj Institutions (PRIs).

35 The true potential of decentralized operations in MGNREGA is yet to be realized in Jharkhand. The gram panchayats (GPs) in Jharkhand are relatively new but are gradually maturing. PRIs are also at a nascent stage

MGNREGA’s operations at decentralization, wherein people’s control and people’s pro-active the grass roots are supposed participation in planning, participation in the programme. to strengthen the local decision-making and monitoring accountability structures has to be fully established. Whereas MGNREGA has several and ensure transparent provisions that can be used to implementation on the ground. MGNREGA has given the GS the strengthen the processes of Whereas the Act itself is amply ultimate right to make their own democratic decentralization and equipped with provisions for plans, which no other institution establish good local governance decentralized operations, this can interfere or tamper with. It through people’s participation, potential is yet to be fully has given the panchayats the right the CFT programme has enriched realized. to implement at least 50 per cent the state with many more of the schemes under MGNREGS. provisions. These include circulars and detailed specific roles for The Vision of Decentralized In Jharkhand, the panchayats each stakeholder, in the form Governance have been made fully responsible of guidelines and office orders, for 100 per cent implementation — which can further establish a of MGNREGS. The Cluster Facilitation Team system of people-centric planning and implementation. This also (CFT) experience in Jharkhand The idea of employment encourages strong accountability can be seen as a practice and guarantee completely eradicates praxis-based study of the gradual and action-strategies through the concept of contractor-based realization of the envisioned the Public-PRI-Administration labour engagement in schemes, strong rural decentralization integration. which was so far the way rural and the strengthening of jobs were given out. The new the local governance. The method empowered the rural The Jharkhand Context positive experiences of the CFT — programme have shown a few unskilled, semi-skilled and skilled glimpses, which have helped us people to have jobs in their The true potential of understand how through strategic locality and, at the same time, decentralized operations in engagement with the community, strengthened the rural service MGNREGA is yet to be realized in the administration and the sector with opportunities in Jharkhand. The gram panchayats elected local representatives, local institutions. MGNREGA (GPs) in Jharkhand are relatively normative influences can be promoted a system of demand- new but are gradually maturing. ensured, which can lead to a based work allocation, which PRIs are also at a nascent stage. change in culture of the rural empowered people to choose the Most GPs are on a learning path governance eco-system. time and duration of their work. and the panchayat secretariats It has a robust monitoring and are not fully activated. There The idea of strong local grievance redress mechanism have been efforts, both by the governance is incomplete articulated in the Act. All this government and civil society, without the idea of democratic is directed to ensuring local to enhance the capacities of the

36 NEWSREACH JAN_FEB 2019 In the context of present-day situations in rural Jharkhand, democratization to the last layer is important, to enhance the state of delivery of services to the poor

representatives of the panchayats awareness and benefits do not true spirit never materialized but the idea of developing GPs reach the last person. on the ground because as an organization is very recent. implementation was mostly Slowly, it has been learned In the context of present-day target-based and controlled by that along with increasing the situations in rural Jharkhand, the block administration. Also, capacities of its members, the democratization to the last layer the contractor-based supply GP, as an organization, has to be is important, to enhance the state mechanism was established capacitated holistically so that the of delivery of services to the poor. in many areas due to the local secretariat starts functioning and Thepanchayats as local governing malpractices and the lack of bodies, the GSs as the ultimate proper systems and processes are monitoring. put in place. decision-makers for grass-roots planning and implementation Although civil societies and The local elite and influential and the strong democratic governments have run demand people have dominated the local people’s institutions and generation drives, called Kaam implementation of MGNREGA collectives as change agents and Maango Abhiyan, from time to for a long time, thereby creating monitors are the way forward. time in villages to regularize space for the middleman- Whereas physical and financial work-demand and to ensure contractor nexus to control the power devolution to the GPs a system of demand-based should be a key focus area, the show. In the absence of a strong allocation, there are hardly any integration between the local local governance and effective spontaneous work- demands. collectives and the PRIs for people’s monitoring, the poorest The workers usually wait for planning and monitoring of remained unattended and supervisors and frontline schemes and ensuring smooth exploited because there was lack functionaries to come to them and transparent service delivery of accountability in the system and ask them to work and, to the last person is also and the demand side, too, was not thereafter, create a demand for important. properly developed. Institutional work. The general notion among linkages between the GSs and Rojgar Diwas: A first step towards the workers is that work is only the GPs are not well-established activating Panchayat Secretariats allocated if the schemes are and the block office has been the sanctioned and opened. centre of all key developmental — activities. The dependence on The Ministry of Rural Rojgar Diwas was supposed to the block administration for Development (MoRD) came change this set idea of work- implementation of schemes and up with a guideline to organize demand and allocation, and supply of social welfare benefits a Rojgar Diwas in the GPs in instead create a formal space has been very high and, thus, the 2013, to improve work-demand at local levels to facilitate system of delivery has been weak generation in MGNREGS. people to demand for work and non-transparent. In such a However, MGNREGS is a as and when they require it. context, a handful of influential demand-based employment An institutionalized platform people become so powerful that guarantee programme and its for constant demand for work

JOURNEY ACTIVATING PANCHAYATS THROUGH MGNREGA 37 In Jharkhand, the idea of Rojgar Diwas was seen as an opportunity to activate the GP secretariats through MGNREGA transactions

at the local level was the idea however, the functionaries at the It has been a long struggle to behind Rojgar Diwas. Although panchayat level are operating from regularize the weekly Rojgar the original guideline from the the Panchayat Bhawan, ensuring Diwas. The success of the Rojgar Ministry was that the Rojgar services and benefits to the Diwas is subject to participation Diwas should take place at least citizens. The infrastructure of the of the citizens in the forum. once a month, Jharkhand has GPs are also getting utilized. Thepanchayats and the local further added a lot of value to administration were not very make it a more effective platform The Rojgar Diwas has been keen on activating the forum but at the level of the GPs. designed in such a way that all through constant engagement kinds of MGNREGS transactions, with the local administration In Jharkhand, the idea of Rojgar for example, job-card application, and the Panchayati Raj Diwas was seen as an opportunity work-demand, work-sanctioning, representatives, it was ensured and preparation of documents to activate GP secretariats that Panchayat Bhawans open translation are done on that day. through MGNREGA transactions. and the functionaries attend the PRADAN has been particularly Both, the state as well as Civil event every week. The people focussed on establishing this Society Organizations (CSOs), were also reluctant to visit the forum, with a long-term goal engaged in the CFT programme, panchayat offices with their of activating the panchayat have considered this as an applications and issues because secretariat as the office of the opportunity to facilitate workers their past experiences with the local government. and PRI representatives. They administration around these have worked towards making PRADAN has been facilitating issues were not very good. the office of the GP a vibrant the women of Self Help Groups place, where citizens are assisted (SHGs) to participate in the One other important factor and supported to access critical weekly Rojgar Diwas with their that helped the Rojgar Diwas inputs and services. The state MGNREGA agenda. It has gain more fuel in the state was government has further built created a positive environment the inclusion of the grievance on the MoRD guidelines and around demand generation; in redress initiatives. Historically, ordered for a weekly Rojgar Diwas many panchayats across our CFT the system of redressal of public at the panchayat secretariat. In areas, demand-generation has grievances is lacking. Grievances Jharkhand, where Panchayat been regularized through citizen are often not heard and registered Bhawans used to always be participation in the Rojgar Diwas. and, if registered, they are not locked up, the opening of Jharkhand has, however, gone monitored or followed-up on. Panchayat Bhawans once a week beyond demand-generation Even a hasty survey in the villages for the purpose of MGNREGS and included all MGNREGS will prove that there are various transactions was a significant activities in the Rojgar Diwas. As issues and grievances, which step. Establishing the panchayat a spill-over effect, social security never come to the surface and office as a centre of local schemes and agendas other than only add to people’s grim plight. administration is still a distant MGNREGA are also addressed in We focussed on the people’s dream; through this initiative, the . issues and grievances in the CFT

38 NEWSREACH JAN_FEB 2019 Panchayats have gradually earned credibility and the offices of the GPS have gained relevance through the initiative of the Rojgar Diwas. This is a pioneering initiative, which now needs to be sustained and built upon further

programme because MGNREGA, Panchayats role in sanctioning: A the GP’s role in the process of primarily being an employment- step towards financial autonomy sanctioning. generation programme, could — not deal with unresolved and PRADAN worked very closely Whereas the Yojna Banao unattended public grievances. with the GPs to ensure that Abhiyan was hugely impactful local priorities were honoured People’s grievances needed to be in the villages and was widely and schemes were sanctioned heard, registered and constantly acclaimed, the story of the according to the needs of the GPs. followed up at all levels. The implementation of schemes Due to the effective engagement platform of the Rojgar Diwas was was not as encouraging as the of the CFT, many schemes were considered to be an ideal forum to planning. The villagers had sanctioned and opened, and attend to the citizens’ grievances planned many assets but only several assets were created. The because the representatives some of these received attention panchayat’s interactions with the from the administration would from, or were sanctioned by, the state and the political executives be present. Important it is that administration. were a lesson in how democratic local matters are registered decentralization would always So far, GPs had almost no role and resolved locally, and that be a journey full of struggle in the sanctioning process in people should not find it difficult and strategic battles. Because Jharkhand. Incorporating the to register their grievances. of CFT’s engagement, the local learning from the past, the Therefore,panchayat secretariats administration, in many cases, state came up with a revised were activated for dealing gave in to honour the GPs’ plans scheme sanctioning guidelines, with grievances, an idea which and priorities. which incorporated two major increased people’s participation in provisions to enable GPs to have Rojgar Diwas. Hatnatodang panchayat in a strong say in the matter of Chakradharpur block has shown Panchayats have gradually earned sanctioning the schemes. For a way forward and created an credibility and the offices of the first time,panchayats were example for all the GPs in the the GPs have gained relevance being empowered to prioritize state. They exercised their power through the initiative of the the schemes for sanctioning. to get their schemes sanctioned Rojgar Diwas. This is a pioneering The state ordered that individual by the block administration. initiative, which now needs to be schemes of up to Rs 1 lakh and Thepanchayat prioritized and sustained and built upon further. community benefit schemes of up submitted a proposal for animal The challenge now is to keep to Rs 1.5 lakhs would not require sheds for their panchayats Panchayat Bhawans open for the any verification from the Circle whereas the block administration rest of the days in the week and Officer and could be passed with was only sanctioning farm ponds. ensure that the secretariats are a self-declaration from the owner. It disallowed the priorities of the activated for other transactions These initiatives simplified the GPs. as well. sanctioning process and ensured

JOURNEY ACTIVATING PANCHAYATS THROUGH MGNREGA 39 Despite being the implementing agencies of the programme, earlier GPs had no control over the implementation and monitoring, and were completely disempowered. This was, primarily, the reason panchayats were disinterested in implementation and were negligibly involved

The GP Executive Committee The detailed guidelines from the expenditure for a specified members then wrote to the state empowered GPs to allocate period of time, to all GP Principal Secretary, Rural work to workers against work- Executive Committee members Development, Jharkhand, demand and also provided it for the purpose of monitoring. referring to the revised monitoring powers. Below are • The BDO also has to sanctioning guideline. The new some of the powers given to GPs mandatorily provide a monthly guidelines stated that prioritizing under MGNREGA: progress report to the block farm ponds over the local President/Pramukh. priorities vetted by the GP was • GPs are empowered to allocate • GPs are empowered to review illegal and such decisions should work to the workers against Rojgar Sewaks and MGNREGA be reversed. The state issued work-demands. a letter to the district, asking • GPs can issue work-orders to supervisors (Mates). the administration to sanction the mates. animal sheds, as required by the • Mukhiyas have the authority Integration of community collectives GP. As a result, animal sheds were to sign Fund Transfer Orders and GPs sanctioned in Hatnatodang, and (FTOs) as second signatories; — other panchayats also got their the first signatory being the We have experienced the Yojna preferred schemes. Panchayat Sewak. Banao Abhiyan, wherein, people’s • Ward Members are supposed collectives have taken part to Panchayat’s role in Implementation to verify each and every muster ensure proper participatory and Monitoring roll in their Wards. and decentralized planning at — • GPs are supposed to issue the the grass roots. The locals had Learning from the experience of completion certificates only then, in an organized way and the CFT and taking cognizance of after which the schemes can through CBOs, partnered with ground realities, the state listed be closed in the Management PRIs to make proper plans around out guidelines with detailed roles Information System (MIS). schemes. and responsibilities for GPs in • GPs can issue supply orders to implementation and monitoring. Panchayats (being the local the vendors for procurement of implementers and frontline material. Despite being the implementing supply machinery) and GSs agencies of the programme, • GPs are to provide a (being the local decision-makers) earlier GPs had no control satisfaction certificate for the are equal stakeholders in the over the implementation material, and only then can process of planning. Thus, and monitoring, and were payment for the material be with the effective partnership completely disempowered. made to the vendor. between panchayats and This was, primarily, the reason • The Block Programme community institutions (being panchayats were disinterested Officer (BPO) is to provide institutionalized through the in implementation and were the monthly 2B report, panchayat planning teams and negligibly involved. which shows the work and the recent Ward Planning Teams

40 NEWSREACH JAN_FEB 2019 Apart from planning in 13 blocks of areas in which PRADAN is operational, we have successfully demonstrated awareness programmes through the apparatus of the women’s Federation office

(WPTs), the local knowledge, being already demonstrated GPs in a Monitoring Role: A capacities and priorities are being everywhere Transparency Initiative honoured. Civil society’s efforts • SHG involvement has been — in technical capacitating, in the made mandatory in Gram Panchayats are empowered to process, further strengthens Panchayat Development Plan monitor the schemes through the quality of the partnership (GPDP) processes several office orders and a and ensures best results on the • Active involvement of detailed guideline on their role ground. Sahayata Kendras at the GP (monitoring with 2B reports, In 2018, the proposed labour secretariat in Rojgar Diwas is power to issue work orders to budget planning was designed demonstrated in blocks such mates, power of allocation of in a way that integration as Basia, Torpa, Shikaripara, works, clearly articulated roles in between the people and the local Sonua, CKP, Peterbar, the sanctioning process, signatory government takes place all the Boarijore, Kisko and Raidih. powers, scheme completion and way to the Ward levels (through • Frequent ward-wise camps for MIS closing of schemes, material WPTs). job-demand, awareness and procurement and payment, etc.). other transactions are seen In various PRADAN and non- Apart from planning in 13 in Basia and Peterbar. Ward PRADAN locations, GPs exercise blocks of areas in which Members take the lead in their power in sanctioning and PRADAN is operational, we such processes, with the CBOs monitoring. have successfully demonstrated mainly involved in organizing Again, the Chakradharpur awareness programmes through such camps and participating example from Hatnatodang the apparatus of the women’s in the activities in the camps. Federation office. This has panchayat can be taken as an • Selection of SHG women Mates strengthened the demand inspiration when panchayat happens with an informal mechanism and also contributed representatives wrote to the understanding among the SHG to activating the GP secretariat state that their priorities were tiers, GSs and GPs in the CFT for MGNREGS transactions not being honoured by the blocks. (Rojgar Diwas). block in sanctioning schemes. • The Mate’s joint review by the Subsequently, the panchayat’s GP and the CBOs has been priorities were selected over Experiences of the CBO-PRI initiated. top-down impositions. Also, integration in Jharkhand (Formal many panchayat functionaries and Informal) • The GP help desk is part of the guidelines that is monitor MGNREGS works — supposed to be run by the GP and seek accountability from • Institutional linkages between office, in collaboration with the administration, with the the CBO and the PRI through the MGNREGA Sakhi (SHG help of local CBOs and CSOs. panchayat planning teams member). Thus, a successful partnership (PPTs) and the WPTs for opportunity between the decentralized planning, two local bodies will trigger

JOURNEY ACTIVATING PANCHAYATS THROUGH MGNREGA 41 In Jharkhand, there have been many examples in which the panchayats, through effective monitoring, have been able to identify discrepancies in the physical implementation of work, in issues of workers accessing their rights and in payment irregularities

transparent implementation their rights and in payment Through trainings, followed on the ground and will hold the irregularities. Although dealing by constant engagement with administration accountable at the with leakages in the present members of GPEC, it has now same time. context is a tough task, the been established that the GPECs initiatives are showing a way in the CFT blocks sit at least Scheme visits, village meetings forward. once a month (in some blocks and monitoring by panchayat fortnightly) to review and representatives, with social audit Activating Gram Panchayat monitor the MGNREGS progress. reports (Report 2B and Report 3) Executive Committee (GPEC) The Department of Rural for review of work-expenditure meetings: An Organization Development in Jharkhand also and payments, have been able Development Initiative has a special monitoring focus to create a culture of monitoring on the operations of the GPEC, — in the area. Along with social which further helped establish audit initiatives, panchayats also GPECs, popularly known and activate this forum. actively verify reports through as Karyakarini Samitis, are their organization. CFTs have responsible for monitoring In the GPs of CFT blocks, the played a big part in making and reviewing the progress of importance of a GPEC meeting panchayat representatives realize developmental activities in is known; the processes are now their accountability as well as panchayats. As several panchayat practised and the powers are responsibilities about reviewing Standing Committees are exercised regularly. the works and the expenditure. supposed to deal with specific The accountability initiatives are areas, the GPEC comprising all GPEC members meet regularly to a multi-tier engagement process, the Ward Members, the Mukhiya verify job applications, allocate wherein the community, GS and and the Panchayat Sewak (being work, review the maintenance GPs are simultaneously trained the Secretary to the Committee) of seven panchayat-level and capacitated to understand are supposed to engage in the registers, prioritize schemes their roles and responsibilities. overall progress review of the for sanctioning, abhilekh The locals can, then, question developmental and social welfare preparations, discussions on and seek accountability of activities in the area. issues and grievances, etc. the representatives and the functionaries at different levels. The state’s guidelines have given GPEC, as an organization, monitoring powers to GPECs; has flourished and started In Jharkhand, there have however, it is important to work functioning only after the CFTs been many examples in which with GPs, to materialize the idea. intervened and provided hand- panchayats, through effective The CFT can facilitate the GPEC holding support to its members. monitoring, have been able to forum, through the dedicated identify discrepancies in the panchayat-level staff working In the beginning of this initiative, physical implementation of work, on streamlining of processes in it was surprising to learn that, in in issues of workers accessing MGNREGS. most panchayats, members were

42 NEWSREACH JAN_FEB 2019 In the beginning of this initiative, it was surprising to learn that in most panchayats, members were not aware of their rights and powers because the local people’s representatives, the guidelines and the office orders often did not reach the GPs

not aware of their rights and with panchayats give us great policy advocacy at the state powers because the local people’s hope and encouragement. level. representatives, the guidelines and the office orders often did not Panchayats in Jharkhand are still 2) Ensure financial power for reach the GPs. We have ensured at a nascent stage and evolving panchayats to have control that GP representatives are very slowly and are yet to be over the administrative funds educated and oriented adequately given key powers and controls. meant for GPs (at least 2 per about their powers, rights, roles Although, in MGNREGA, the cent of the contingencies). and responsibilities. powers and responsibilities of the PRIs in planning and monitoring 3) Establish complete operations It is, however, a fact that the are clearly articulated, the of MGNREGS transactions at incentives and honorariums sanctioning and financial powers the GP level by: for GP representatives are not are yet to be devolved to the ‚‚ Re-enforcing the existing very lucrative and ‘sometimes’ panchayats. guidelines that define the responsibilities become burdens. panchayat’s powers and In the present scenario, we see Most members of the panchayat, responsibilities in planning, a lot of scope in establishing however, become engaged in the implementation and control of the local self processes according to their roles monitoring because these have established governments over MGNREGA ‚ their credibility among the people through the introduction of ‚ Ensuring provisions for who elected them and also give various institutional mechanisms muster roll printing from them a sense of power when and devolution of key powers. the panchayat’s log-in id monitoring schemes and the It is an excellent opportunity (currently done from the functionaries. and a proper time to activate GP Programme Officer, PO, secretariats through MGNREGA log-in id) by advocating and, then, further work on the with the state and through Opportunities OD processes and effective demonstration of the idea in — advocacy at the legislative and some places The current experiences of bureaucratic levels to ensure ‚‚ Ensuring provisions for working with GPs have further strengthened, responsible and muster roll generation opened up several avenues to accountable panchayats in the with the Panchayat Sewak’s work for establishing governance state. signature (currently the BPO mechanisms at the GP level. signs on it). Following are some of the key These experiences have been ‚‚ Ensuring proper opportunities: enriching and, despite the fact infrastructure placements at that representatives of PRIs are 1) Ensure administrative the GP secretariat through not paid adequately and not much sanctioning powers are state-level advocacy and has happened for their capacity- devolved to GPs with effective grass-roots level monitoring. building and awareness, working

JOURNEY ACTIVATING PANCHAYATS THROUGH MGNREGA 43 The opportunities are many. In order to tap these opportunities, the state will have to ensure that the current bottle-necks and challenges are removed. Most of the current issues are linked with the policies of the central and the state governments, which need to be addressed by the government

‚‚ Setting up a GP-level help Panchayats are yet to get financial Financial powers will also make desk for information, sanctioning powers that will make panchayats empowered to deal facilitation, support and them operate independently from with the major grievances of the grievance management the block and fulfill the needs workers. Currently, panchayats are is important, which may of the locals according to the not capacitated to resolve people’s be constituted at GP requirement of the area. This is an grievances because they have very levels, with participation important area to be looked at. little control over critical matters. from people’s collectives and PRI representatives. Panchayats have also been Stories of Inspiration Institutionalizing these demanding direct access to two collaborations will ensure per cent of the administrative — more space for collectives in cost. This will help them operate Kaliga GP PRIs and, thereby, in local as an independent organization governance. and free them from the influence As part of the Beacon of the block administration. panchayat programme, Kaliga The opportunities are many. In GP was selected for a special order to tap these opportunities, Apart from this, one important demonstration for service the state will have to ensure challenge will be to ensure muster delivery and implementation of that the current bottlenecks and roll generation and establish an schemes. The Beaconpanchayat challenges are removed. Most of MIS at the GP level, which would programme has been initiated the current issues are linked with need the state to write to the with an aim to establish and the policies of the central and the central government immediately. enable GP secretariats to extend state governments, which need to be addressed by the government.

The issue of low honorarium, financial sanctioning authority and direct access to administrative funds are major issues that need to be dealt with immediately. At present, Ward Members are not paid adequately and their payments are irregular as well. A meagre sum of Rs 200 is inadequate to fulfill the needs of Ward Members and, thus, sometimes the powers are considered a burden and are not exercised properly. A picture of MIS Operator Kajal Kumari working at the Kaliga GP Secretariat

44 NEWSREACH JAN_FEB 2019 In a state such as Jharkhand, it is important that facilitation, information, awareness, implementation, service delivery and grievance management happens at the panchayat secretariat, which is relatively closer to the people and easier to access, given the dynamics between the people and the panchayats services to the citizens. The Kaliga is the firstpanchayat that in registration-and application- critical services relating to has, to some extent, materialized related work at the GP various schemes, programmes the dream of activating the Secretariat on Rojgar Diwas. and welfare initiatives need to complete MGNREGS transactions • Regularize the GPEC meeting be channelled through the GP at the GP secretariat level. In and maintain a GPEC checklist secretariat, in order to make the the Beacon GPs and, thereby, in for measuring performance of local government active and to Kaliga, we have been constantly GPs. establish proper accountability promoting the following • Regular monitoring of Register mechanisms at the grass roots. activities: No. 3 with original documents, In Jharkhand, villages are • Ward-wise awareness and in order to ensure on-time usually located far away from transaction camps for allocation and Ward Members’ the block; due to many social MGNREGS, with respective responsibility in allocation. Ward Members leading the and local dynamics, people are Apart from this, the Mukhiya, camps. routinely hassled and troubled Alok Toppo, went one step and, sometimes, denied access • Grievance Redress Day at GPs, ahead and took the initiative to their rights and benefits. apart from the weekly Rojgar to establish the Management Therefore, in a state such as Diwas, to provide people an Information System (MIS) set- Jharkhand, it is important opportunity to register their up at the panchayat level. For that facilitation, information, grievances at the panchayat complete decentralization of awareness, implementation, level itself. MGNREGS systems, it is most service delivery and grievance • Regular planning by important that the MIS is set management happens at the panchayat representatives up at the GP level and muster panchayat secretariat, which is around monitoring and rolls generated from the local GP relatively closer to the people scheme inspections, with Secretariat. and easier to access, given the reports, and carrying out the dynamics between the people and responsibilities as planned. However, in the present-day the panchayats. system in Jharkhand, the muster • Carrying out the roles roll cannot be printed from the and responsibilities by GP The Beaconpanchayat programme GP’s log-in id and can only be members in sanctioning, aims at strengthening GPs by generated and printed from the implementation, scheme developing its organizational PO log-in id, which is the block closure, monitoring payments structure (by strengthening log-in id. Further, the muster and material procurement, Standing Committees and the rolls have to be signed by the BPO according to guidelines. GPEC), extending support in when issuing them because the awareness and capacity-building, • Appoint Sahayata Kendra BPO holds the issuing authority and meaningful advocacy at each representatives to help people of the muster rolls in Jharkhand. level.

JOURNEY ACTIVATING PANCHAYATS THROUGH MGNREGA 45 This arrangement between the panchayats and the block can be seen as a temporary one but has given adequate insights that the state is considering having a discussion with the Ministry over a possible change in the provision of the MIS to empower the panchayats to generate, print and issue muster rolls from panchayat log-in ids for Jharkhand

Despite obstacles and technical but a scope for discussion was The story of Kaliga, however, obligations, Alok Toppo’s created, which can prove to be a is not a permanent solution indomitable spirit has brought game-changer for the question but has given us a taste of the vibrancy to our initiative in of decentralization in the coming envisioned state that we had Kaliga. The panchayat has days. dreamt of. We expect, that by appointed an operator for entries next year, Jharkhand would related to both MGNREGS Transactions such as the Entry of have completely established its and the Fourteenth Finance demands, Job-card generation, MGNREGS transactions at the GP Commission (FFC) works, and MR generation, Entry of filled Secretariat. pays the MIS operator from the MR, Wage-list generation, Fund FFC money. The operator was Transfer Order (FTO) generation Pantha Panchayat and FTO signing have been trained for a month in the block — before finally getting placed at the possible in the GP secretariat panchayat. itself and this has made Under the able leadership of implementation far easier at the the Mukhiya, Basant Guria, Further, the block has given its local level. The Rojgar Sewak’s job the Pantha GP has been the PO log-in id in good faith to the has become easier because he no most impressive in the quest panchayat operator and they longer has to shuttle between the of achieving decentralized have been generating, printing villages and the block to make governance at the grass roots. and issuing muster rolls from things happen on time and can Along with other initiatives, this the panchayat itself with the easily operate from the Panchayat panchayat has demonstrated BPO signing the muster rolls Bhawan. in bulk from time to time. This arrangement between the panchayats and the block can be seen as a temporary one but has given adequate insights that the state is considering having a discussion with the Ministry over a possible change in the provision of the MIS to empower the panchayats to generate, print and issue muster rolls from panchayat log-in ids for Jharkhand. However, there are multiple technical glitches in achieving this, including the change of issuing authority (currently the BPO in Jharkhand) The Mukhiya of PanthaPanchayat , Basant Guriya, facilitating a Mate review event

46 NEWSREACH JAN_FEB 2019 There are many obstacles in the journey of democratic decentralization and accountable governance. Many of these issues are linked to policies and some others are linked to implementation and grass-roots dynamics. Our short-lived experience has been an enriching one and has re-established that learning by doing is the best practice on the ground exemplary action at the GPs in linkage with the block for This practice of a joint mate MGNREGS, which can open up reciprocation relating to public review has been strengthening new avenues in the area of local grievances through Sahayata the CBO-PRI integration at the governance. Kendra representatives, who panchayat level. Learning from act as a bridge between the two Pantha many other panchayats Pantha panchayat has been institutions through which across blocks in Jharkhand have instrumental in organizing the follow-ups and escalations now planned to initiate the Rojgar Diwas and helping people happen with the administration. process. apply and register their various It is still unfortunate that needs at the GP level. It has panchayats have little power Conclusion reserved one Rojgar Diwas as to resolve or redress people’s Grievance Redressal Day, wherein, issues at the moment and hence — only people’s grievances are heard most issues need to be taken up There are many obstacles in and registered. In a rural set-up, with the block administration the journey of democratic where the voices of the weakest and subsequent levels in case decentralization and accountable and marginalized are hardly heard of non-redressal on time. We governance. Many of these and often lost or suppressed, this are also hoping that our little issues are linked to policies initiative has given genuine hope. demonstrations will soon change and some others are linked this and will empower panchayats to implementation and grass- As an extension to the Grievance to deal with people’s issues and roots dynamics. Our short-lived Redressal Day and Rojgar Diwas, grievances. experience has been an enriching Pantha has put in place a help one and has re-established that desk for citizens’ awareness, The most recent and most learning by doing is the best information and registration important initiative taken by practice on the ground. Action of grievances at the panchayat Pantha is the review of Mates by on the ground and the evidence- secretariat, aimed at creating a a joint team of representatives based policy advocacy seem to be front support desk for people of women’s collectives and the the way forward here. for a steady solution related to panchayat. This joint review, on information, facilitation and the one hand, helps in sustaining public grievances. the SHG Mate initiative through regular reviews and immediate — Pantha has also established a intervention, checking drop-outs Debmalaya Nandi coordinates the CFT good communication mechanism and, on the other hand, ensuring project (PRADAN). He is based in Ranchi. Debmalaya has more than 10 years of with the block regarding public that Mates’ issues surface and experience and has worked in Jharkhand and grievances. It has created a payments are made on time. Odisha.

JOURNEY ACTIVATING PANCHAYATS THROUGH MGNREGA 47