Concept and formulations
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The document outlines the key aspects of the Mahatma Gandhi National Rural Employment Guarantee Act (MGNREGA), India's job guarantee scheme. It provides details on the objectives, eligibility criteria, employment process, entitlements such as wages and unemployment allowance, implementation structure at the district, block and village levels, selection of works, funding patterns, oversight councils and funds, transparency measures, and operational guidelines. The scheme aims to enhance rural livelihood security by providing at least 100 days of guaranteed wage employment per household annually.
Concept and formulations
- 1. 1
- 2. Objective To enhance the livelihood security of the households in rural areas of the country by providing at least one hundred days of guaranteed wage employment to every household whose adult members volunteer to do unskilled manual work. 2
- 3. Eligibility • Rural areas notified by the Central Government. • 150 NFFWP Districts. 50 more districts to be decided by Planning Commission. • Legal Obligation to cover entire country within five years. • All rural households. • Local residence. 3
- 4. Process Demand Based Employment • A rural household can demand at least 100 days of guaranteed employment in a financial year. • Household has to get registered with the Gram Panchayat. All names of adult members can be registered. • Gram Panchayat will issue a job card. Job card is for the Household. • Within household entitlement of 100 days every registered household member will apply for work. 4
- 5. Process Time Bound Guaranteed Employment • Work to be given within 15 days of the date when demanded for as many days as demanded (at one stretch not less than 14 days) • Gram Panchayat will allot employment and keep record of it. • Local Employment within a radius of 5 kilometers of local residence. If not, extra-wages at the rate of 10% of the wage would be provided towards additional transport and living expenses. 5
- 6. Entitlements Unemployment Allowance • If employment is not provided within 15 days from the date from which the applicant seeks employment a daily unemployment allowance, in cash has to be paid. • Allowance to be paid at the rate of 1/4th of the minimum wages for the first 30 days and at the rate of half of the minimum wages for the subsequent days of the financial year. 6
- 7. Entitlements Humane & Equitable conditions of work • Worksite facilities as drinking water, emergency health care, Creche (where 5 children come) timely payment of wages: Within a week, not later than a fortnight. • Ex Gratia payment of Rs. 25,000 in cases of death or disability. • Timely payment of wages : Within a week, not later than a fortnight. • At least 1/3rd beneficiaries – women. 7
- 8. Entitlements Wage Rate • Statutory minimum wage rates for agricultural workers fixed by the respective State Governments would be applicable. • The Central Government enabled to fix the wage rate, from time to time, for the purposes of this Act notwithstanding anything contained in the Minimum Wages Act. Wage rate not to be below Rs. 60 per man day. • The Central Government may notify different rates for different areas. 8
- 9. Entitlements Payment of Wages • Labour to receive wages weekly and in any case not later than a fortnight. • Wages may be paid wholly in cash or partly in kind. Provided that at least 25% of the wages must be paid in cash. • Provision to be made, under the rules, for payment of part of the cash wages on a daily basis to the labourers. 9
- 10. Implementation Structure District Level • State Government to designate a District Programme Coordinator who will be either the Chief Executive Officer (CEO) of the District Panchayat or the Collector of the District, or any other district level officer of equivalent rank. 10
- 11. Implementation Structure Block Level • State Government to appoint a Programme Officer (of the rank of BDO) exclusively for administering the scheme in the area. • The Programme Officer would be responsible to the District Programme Coordinator. • Centre to meet the salary cost of the Programme Officers and Supporting staff. 11
- 12. Implementation Structure Panchayat Raj Institutions • Principal role of Panchayats at all levels for Planning, Implementation and Monitoring • District Programme Coordinator and Block Programme Coordinator to assist the PRIs 12
- 13. Roles & Responsibilities Village Level- • Gram Sabha - Recommendation of works to be taken up • Monitor execution of works by Gram Panchayat. • Social Audit. 13
- 14. Gram Panchayat Level • Register the household. • Issue job card. • Register Demand for work. • Allotment of employment opportunities within 15 days. • To execute at least fifty percent of the works in terms of cost in its area. 14
- 15. Block & District Level • Intermediate Panchayat • Approve plan of works. • Monitor and Supervise gram panchayat works. • District Panchayat. • Approve and finalize Block wise shelf of Project. • Monitor & Supervise. 15
- 16. Programme Officer • To assist Intermediate Panchayat. • Match demand with employment opportunities. • Prepare block plan & approval from Intermediate Panchayat. • Monitoring of Projects. • Sanction & payment of unemployment allowance. • Ensure prompt and fair payment of wages. • Ensure regular social audit. • Handle complaints. • Any other functions assigned. 16
- 17. District Programme Coordinator • Consolidate Plan proposals of Intermediate Panchayats to submit to district Panchayat. Prepare a Labour Budget for sanction by District Panchayat. • Will accord administrative and technical sanction overall responsibility for implementation. • Coordinate with Programme Officers. • Review, Monitor supervise. • Redress grievances. 17
- 18. Selection of Works Type of work Water conservation and water harvesting 1-Drought proofing (Including afforestation & tree plantation. 2-Irrigation canals including micro & minor irrigation works. • Provision of irrigation facility to land owned by households belonging to scheduled castes and scheduled tribes beneficiaries of India Awas Yojana and Land reforms • Renovation of traditional water bodies, including desilting of tanks. • Land Development. • Flood control and protection works, including drainage in water logged areas. • Rural connectivity to provide all weather access. • Any other work which may be notified by the central Govt. in consultation with the state Governments. 18
- 19. Selection of Works • New works under the scheme would be commenced only if (a) at least 50 labourers become available for the work, and (b) the works cannot be absorbed in any ongoing work. Exception for works in hilly areas and afforestaion works. • Material component of the works including the wages of skilled and semi-skilled labourers not to exceed 40% of the total cost. • Ban on Contractors and Discouraging use of Labour Displacing Machines. 19
- 20. Selection Process • Gram Sabha to recommend works to Gram Panchayat. • On basis of recommendations of Gram Sabha to prepare a development plan. • Programme Officer to coordinate plan proposals for approval by Intermediate Panchayat. • Plan must identify implementation Agency. • Intermediate Panchayat to approve the block plan and forward it to District Panchayat. • District Panchayat to approve and finalise Block wise shelf of Projects. 20
- 21. Implementation Agencies • Shelf of Projects to be kept ready with each implementing agency, with AS/TS, so that work can be started on demand • Implementation Agency : Gram Panchayat : 50% of works in terms of total cost of work in a gram panchayat 21
- 22. Implementation Agencies Other implementing agencies: Departments of Central or State Government, the other Panchayat Raj Institutions, Non- Government Organizations or any other local authority or government undertaking 22
- 23. Transparency and Accountability Need to establish mechanisms to ensure transparency and accountability at all levels. The mechanisms would include- • Inspections by the concerned officers. • Social audit. • Periodical audit of expenditure under the Scheme. • Making accounts and records relating to the Scheme available for public scrutiny, and • Payment of wages before the community. 23
- 24. Grievance Redressal Mechanisms • Appropriate mechanisms need to be established at the district and the Block level to redress grievances of applicants relating to their entitlements’ under the Scheme, in particular, with regard to- • Default by the Gram Panchayat and the Programme Officer in providing employment, • Non-payment of unemployment allowance, • Non-payment of wages due, • Facilities to be provided at the work sites, and 24 • Discrimination and harassment of women.
- 25. Funding Pattern Central Government Share • Unskilled wage component of the cost of the scheme. • Seventy five percent of the material component including the wages of skilled and semi-skilled workers. •Administrative expenses, which may include- • Salary and allowance of Programme Officer and their supporting staff. • Administrative expenses of the Central Council, • Capacity building of Gram Panchayats, • Facilities to be provided to the labourers, and • such other items as may be decided by the central Government. 25
- 26. Funding Pattern State Government’s Liabilities • Twenty five per cent of the material component including the wages of skilled and semi-skilled workers of the Scheme, • Unemployment allowance payable under the provision of the Act, • Administrative expenses of the State Council. 26
- 27. Employment Guarantee Funds & Councils • Central Government shall establish a National Employment Guarantee Fund, • State may also establish State Employment Guarantee Funds. • Provision for Central and State Employment Guarantee Councils to- • Periodically review, supervise and monitor the implementation of the Scheme. • Widely publicize the Scheme and • Advise the concerned Governments on all matters concerning the implementation of the Act from time to time in their areas 27
- 28. Employment Guarantee Scheme • After the enactment of the Act, each State Government to prepare a Scheme within six months to operationalize the provisions of this Act. • Centre will issue broad Guidelines. 28
- 29. Operational Issues for Discussion Planning • Perspective Plan (NFFWP) reorient towards EGS • Approval by Gram Sabha/Panchayats • Works Manual of Prototype works/Designs/estimates • Schedule of Rural Rates • An annual Shelf of Projects (with AS/TS) with implementing agencies • Publicize Approved Works • Works to start on Demand 29
- 30. Operational Issues for Discussion Management • Personnel • Designate District Coordinator • Position Programme Officer - Deputation - Contract • Identify Supportive Staff • Plan 2% use for managerial needs 30
- 31. Operational Issues for Discussion Management Capacity Building • Train District and sub-district officials • PRIs 31
- 32. Management : Funds • Budget Provision for state share : 10% • Provision for Unemployment Allowance • Separate Accounts at each operational level • State employment guarantee fund 32
- 33. Management: Monitoring System • Need to review existing MIS to include EGS requirements • Need to examine possibility of computerizing operations and key records like muster rolls, job card Registrations. 33
- 34. Management : Accountability System • Right to Information Act will apply : Access to Public Records • Social Audit Systems need to be worked out • Web site for disseminating information 34
- 35. Communication • Disseminate information on the Act • Sustained multi media communication targeting different stakeholders and partners • Need to reach out to the intended beneficiaries, and mobilize demand 35
- 36. Suggestions Sought Guidelines being framed. Suggestions sought, specifically on • Registration Process • Design of Job Card • Social Audit 36
- 37. Pre- Launch Check List • 1. Planning • State EGS notification • - Including finalization of registration process, Job Card Design, charter of roles and responsibilities for each agency, Social Audit mechanisms. • State Rules • Perspective Plans • Annual Plans with detailed AS/TS and Shelf of Projects • Plan Approval • Gram Sabha/GP/IP/DP • State Works Manual • Publish approved works • Issue schedule of Rural Rates • Demand Estimation 37
- 38. • 2. Communication • Multi Media Campaign targeting different stake holders • Community Mobilisation • 3. Management • Personnel • -Identification and Positioning key personnel • Structures: • Setting up local vigilance and monitoring committees • Activising Gram Sabhas • Ensuring PRIs and other management agencies have basic wherewithal • State Council 38
- 39. • 4. Training • Government Personnel • PRIs • Local vigilance Committees • Orienting Gram Sabhas • Any other implementing or monitoring, or social audit agency 39
- 40. • 5. Monitoring, vigilance and Accountability • Operationalising a computerized MIS • Clear outcome indicators • Establishing social audit mechanisms • Identifying key action points under RTI 40
- 41. • 6. Funds • Budget Estimate to be communicated to GOI • State EGS Fund • State EGS Budget Head • Accounts at District/ Sub-district levels • Fund Transfer to Dist /sub- district .Account (if needed) • Onward transfer to IA 41
- 42. 7- Printing of Forms and Registers • Printing of application forms for registration (optional) • Printing of Job Cards • Printing of Registers to be maintained at GP/PO/District/Implementing Agency level • Printing of Muster roll forms 42
- 43. • 8- Codification System for Registration • Codification system of BPL Census 2002 may be followed and may be made available upto each Panchayat. 43
- 44. 44