The Prime Minister, Dr. Manmohan Singh at the launch of MGNREGA at Bandlapalle village, Anantapur District of Andhra Pradesh, on Feb 2, 2006.

MANAGEMENT, PLANNING And ORGANIZING OF MGNREGA LABOUR BUDGET

A CASE STUDY OF ANDHRA PRADESH

Asif Hasan1

I. INTRODUCTION

The Mahatma Gandhi National

Rural Employment Guarantee

Act (MGNREGA) was enacted

in September 2005, and

implemented in a three

phased in Andhra Pradesh.

Phase one started in April

2006 and covered 13 Districts.

In phase two 6 districts were

covered and started in April

2007. The last phase started

in remaining 3 districts in

2008.

Andhra Pradesh being the first to start the programme reached excellence level in terms

of implementation and planning. Since inception Andhra Pradesh partnered the

programme with a big It company i.e. TCS. TCS not only helped in muster roll but it is

involved in each and every step of MGNREGA implementation starting from Job Card to

planning to muster roll verification to wage payment.

1 Mr. Asif Hasan submitted thesis for the award of PhD in Management & Poverty Alleviation Program. He is MBA and having 12 Years of Teaching, Training, & Consultancy Experience. He has published several papers, articles, and Case studies. At Present he is Faculty and Coordinator, Department of Vocational Courses, MMHAP University, Patna

MGNREGA Village- A Model kept in Commissioner Office, Hyderabad

The MGNREGA Act aims at enhancement of livelihood security of the households in

rural areas of the country, by providing at least 100 days of guaranteed wage

employment in every financial year to every rural household whose adult members

volunteer to do unskilled

manual work. Creation of

durable assets is also an

important objective of the Act,

with other auxiliary objectives

including protecting the

environment, empowering

rural women, reducing rural

urban migration, fostering

social equity, and

strengthening rural

governance through

decentralization and

processes of transparency and

accountability.

II. OBJECTIVES The study gives emphasis on different aspects of planning preparation of MGNREGS in

Andhra Pradesh in order to understand the process and also to quantify the benefits

that may have accrued to the participating workers. The objectives are as follows:

What are the processes adopted for planning.

How planning is done for shelf of work

What are the best practices adopted for identification and capture of work

What are the best practices adopted for perfect planning.

Procedures adopted for registration of households, issue of job cards and

procedure for providing employment

Role of Gram Panchayat and NGOs in the above processes

Process of preparation of Gram Panchayat Employment Guarantee Scheme

(EGS) plan and participation of community in the Gram Sabha; Process of

preparation of technical estimation and finalization of EGS plans

III. PROFILE OF ANDHRA PRADESH

Andhra Pradesh (A.P.), one of the southern states of India, is India's 4th largest state by

area and 5th largest by population. The state is divided into three regions- northern part

is the Telangana region, the southern part Rayalaseema and Coastal Andhra. The state

has 23 districts with Hyderabad as capital city. Other prominent cities include

Visakhapatnam, Vijayawada, Tirupati, Srikakulam etc.

Andhra Pradesh Known as the rice bowl of the South, Andhra Pradesh has an

excellent conducive climate for

growing food and non food crops.

Paddy, pulses, oilseeds, millets

are major food crops while

tobacco, cotton, chillies,

vegetables, fruits, are other

commercial and horticulture crops.

The state is a leading producer of

many of these crops.

Andhra Pradesh has a geographical area of 275.04 lakh ha accounting for 8.37% of the

country’s area, the 4th largest State in the country. With a population of 8.47 Cr as on

1st March 2011, the State accounts for 7.16% of the country’s population making it the

5th most populous state. The State is situated in the tropical region and has 2nd longest

coastline of 974 km in the country giving rich potential for marine fisheries.

The State is blessed with major river systems like the Godavari, Krishna, Pennar,

Vamsadhara and 36 other rivulets making it the rice bowl of India. The State is also a

leading producer of cash crops like Tobacco, Groundnut, Chillies, Turmeric, Oilseeds,

Cotton, Sugarcane, and Jute. It produces some of the finest fruit varieties of mango,

grape, sapota, guava, papaya and banana. The state is also one of the leading

producer of maize, vegetables, pulses, etc. The State is a leading producer of poultry

products.

Infrastructure Overview:

Roads: Till end of 2011-12, the state had a road network of over 2 15267 km.

Railways: South Central Railway covers a network of 4,752 km in the state.

Airports: Hyderabad has an international airport. There are domestic airports at

Vishakapatnam, Tirupati, Rajahmundry, Warangal, Vijayawada, Donakonda,

Cudappah and Puttaparti.

Power: As of January 2013, Andhra Pradesh had a total power generation

installed capacity of 16,817.13 MW

Ports: The state has the second-highest cargo-handling port- Visakhapatnam

port – which ranks amongst the top three major ports in the country. In addition,

the state has 14 intermediate and minor ports.

IV. MGNREGA IN ANDHRA PRADESH:

MGNREGS-AP AT A GLANCE

Report for the Financial Year : 2014-2015

Report as on Date : 01. 04. 2014

State : Andhra Pradesh

Total No of Districts under EGS 22

Total No of Mandals 1098

Total No of Grampanchayats 21863

Total No of Habitations 69071

Total No of Jobcards Issued 1,36,26,053

Total No of Labour (SSS) Groups Registered 614244

Total No. of Labour in Labour Groups 9268875

Financial Year of 2014-2015 Cumulative Since Inception

Works in-progress Number 13,30,428 -

Estimated Value-(Rs in Lakhs) 22,57,766.10 -

Total No of Works Completed

Number 0 42,43,804

Estimated Value-(Rs in Lakhs) .00 43,36,890.91

Total Expenditure

Wages (Rs in Lakhs) .00 20,73,902.39

Material and Skilled Wages (Rs in Lakhs) .00 6,76,851.59

District Contingent Exp (Rs in Lakhs) .00 2,08,150.62

State Contingent Exp (Rs in Lakhs) .00 24,754.77

Total Contingent Exp (Rs in Lakhs) .00 2,32,905.40

Total (Rs in Lakhs) .00 29,83,659.38

Admin Exp % 0 -

Wage Employment Provided

Household (Nos) 0 93,74,212

Individual (Nos) 0 1,89,07,662

Men (Nos) 0 88,67,009

Women (Nos) 0 1,00,40,653

SC Individual(Nos) 0 47,96,159

ST Individual(Nos) 0 25,92,918

Persons with Disability (PWDs Nos) 0 1,39,740

No of SSS (Nos) 0 4,91,787

No of SSST (Nos) 0 1,34,463

No of VSSS (Nos) 0 14,172

No of ST Individual in SSS (Nos) 0 771655

Total No of Person days generated 0 2,16,91,63,714

No of Person days generated for SC Percentage (%) 0 0 537449789 24.78

No of Person days generated for ST Percentage (%) 0 0 325620759.5 15.01

Average Wage rate per day per person (Rs.) 0 95.61

Average No of days employment provided per Household 0 -

Total No of Households completed 100 Days of Wage Employment 0 61,50,174

% payments generated within 3 days 0 -

Labour Vs Material (%) 0 0 - -

% of Payments Disbursed within fortnight(bio-metric) ( based on disbursement data ) 0 -

Source: http://nrega.ap.gov.in/

KEY PROCESS IN IMPLEMENTATION

Source: Rural Development Department, Andhra Pradesh

V. MGNREGA STRUCTURE IN ANDHRA PRADESH:

The State government constituted the State Employment Guarantee Council

(SEGC) in August 2006. The District Collectors are designated as District

Programme Coordinators (DPCs) and the Project Director, District Water

Management Agency (DWMA) is appointed as Additional DPC and are responsible

for implementation of REGS in the district concerned. It also recruited the POs,

Technical Assistants (three for each mandal), Computer Operators cum Accountants

(two for each mandal) and Field Assistants (one for each GP) during 2006-07. About

Planning of worksPreparation of Labour BudgetIdentification of worksApprovals of Gram SabhaTechnical & Administrative approvals of the works proposed

Application for workApplication for work every weekUploading of demand applications by Field AssistantWork allotment & Printing of allotment lettereMuster ID generation & Commencement of work based on eMuster

Payorder GenerationUploading of attendance through Mobile/data entry at MCCMeasurements & Check Measurements with GPS coordinates & PhotographsPayordergeneration & Uploading of FTOs

Payment of WagesWage slips distribution through Srama Mitras(mates)Payment of wages through Smartcard agencies / Postal dept.

Transparency & AccountabilityUse of ICT –RAGAS; eFMS; eMMS; Biometric Authenticated Payments Social Audit & Special Mobile CourtsVigilance and Social Audit follow-up actionAP NGO Alliance Quality Control Cell

PROGRAM OFFICER

ADDITIONAL PROGRAM

OFFICER

ENGINEERING CONSULTANT

TECHNICAL ASSISTANT

COMPUTR OPERATOR

FIELD ASSISTANT

Government Official but from March 2012, Additional Program Officer is acting as Program Officer

Additional Program Officer , Engineering Consultant, Technical Assistant, Computer Operator, and Field assistant are contractual employee thy are known as fixed tenure employee

3,300 staffers were recruited from the open market on outsourcing basis for the

implementation of the programme effectively

Mr. Shashi Bhushan (IAS), Commissioner Rural Development, Andhra Pradesh

VI. LABOUR BUDGET PREPARATION AND PLAN IN ANDHRA PRADESH

“In Andhra Pradesh we start the process of making labour budget little bit early in October. We start impart the training programs for the field implementing staff. We organize two gram sabhas for approval of labour budget. We also take the help of ICT designed and managed by TCS at each end every level of planning.” Mr. Shashi Bhushan (IAS), Commissioner Rural Development, Andhra Pradesh

Andhra Pradesh has adopted several best practices for

Preparation and planning of Labour Budget.

Andhra Pradesh use to prepare labour budget Gram

Panchayat wise based on the following principle. The tentative Labour Budget for each

GP shall be worked out in the Format-I after the discussion with all the wage seeker

groups.

I. The Number of Potential wage seeking House Holds shall be taken as No.

of households in SSS +SSS (T) + VSSS + if any serious labour

households yet to be covered in SSS system

II. Average wage days required per GP shall be taken as the maximum

number of average days generated in a year in the GP during any of the

previous years.

III. Cost per person day = Rs. 248.00 (Wage Rs. 149.00 + Material Rs.

99.00)

LABOUR BUDGET = Number of Potential wage seeking House

Holds (HH) X Average Wage days required per GP X Cost per

person per day.

After calculation the data shall be entered in the screen provided in Mandal Computer

Center [MCC] and shall be uploaded to Assistant Project Director [APD]. The APD shall

check the validation and if found correct shall upload the details to Project Director,

DWMA. If not correct resend to MCC for resubmitting the correct data.

Planning of Works: The most common reason for unrealistic shelf is known to be as

lack awareness of the village community about the benefits of MGNREGS works and

non participation of the village community. Quality planning leads to quality execution

and quality implementation. Preparatory arrangements are as follows.

PLANNING TEAMS: For preparing labour budget two planning teams use to be

constituted in each mandal APO, TA, GP secretary, FA as one team , EC, TA, GP

secretary, FA as second team. In case of more GPs/Habituations third team may also

be constituted with senior technical TA, GP secretary, FA as members.

GP wise schedule: the programme Officer shall prepare the GP wise schedule for

planning. Depending on the number habitations, number of SSS groups 3 to 4 days

may be planned in each GP. Advance intimation shall be given through tom-tom about

the planning to all the elected representatives, farmers, Mates, SSS group members

and NGOs.

Labour Budget formats and input data sheets shall be printed/Xeroxed in sufficient

number and handed over to the planning teams. Flexi shall be printed with the possible

feasible project wise, work wise good colour photos. Each team shall have one set of

flexies. Flexi shall be downloaded and printed in colour. Wherever required flexies may

be designed and printed with local works.

CONDUCTING GRAM SABHA

Two Gram Sabhas organized in each GP, on the first day and on the last day

of planning. In the First Gram Sabha, Labour Budget prepared and approved,

the discussion on previous year's achievements, and Permissible list of works

explained with the help of the flexies of various type of works. On the last day of

Filling up of Application Form

In-Put data sheet

Gram Sabha, a discussion on list of

identified works, and approval of works

identified by the Gram Sabha.

The Gram Sabha is headed & presided by the

Village Sarpanch, Participation of labour (SSS)

groups, SHGs, Village Organizations, NGOs,

Farmers, and Public Representatives Based on

Gram Sabha approvals, annual plan is prepared

for the next financial year.

The best thing that all record and photos of Gram Sabhas is to be maintained in all GPs

5. Input Data Sheets.

I. Project wise, work wise, input data sheets are

given in Annexure-3

II. Estimates are generated based on the input data

values data sheets signed by the teams.

III. Estimates shall not be generated without the

valid input data sheets signed by the teams.

IV. Block input sheets (Format-2), work in-put data

sheets (Annexure-3) shall be downloaded and

printed from RAGA software.

K. Nagabhushanam , Additional Program Officer, Yacharam, Rangarddy Dist.

PREPARING SHELF OF PROJECTS TO MATCH DEMAND “A shelf of projects (SoP) consists of those projects that have been given administrative and technical sanctions and can be opened up immediately upon receipt of demand for employment” K.

Nagabhushanam

Feasible, possible and permissible works shall

only be identified and pushed to the shelf of

works. Estimates shall be generated with

realistic quantities. Creation of durable assets

and strengthening the livelihood resource

base of the rural poor is one of the important

objectives of the MGNREG Act.

a. Quality shelf Works: Quality is always the major problem across all the districts.

Out of the total available shelf 26 lakh words were closed by 31 May 2013

Further 15.63 lakh were closed during the recent closure of works.

b. Existing Shelf of Works: A report is made available in the web R. 13.4 with the

works recommended for continuation. The probable number of spill over man

days (works) in each GP is shown in the report. While identification of new shelf

of works the spillover works (man days) in the GP shall be considered. Works

shall be identified to the extent of 1.5 times of the Labour Budget of that GP.

c. Permissible list of works: as per schedule –I of the Act, works, which fall under

16 permissible categories and permissible list of works, shall be taken up. The

permissible categories of works are enclosed vide Annexure-1. The permissible

list of works are enclosed vide Annexure-2.

d. Area Specific Works. In case of non availability of works to the meet the labour

budget of the GP, Area specific Works shall be identified and uploaded which

are not covered in the permissible list of works but which fall under 16

permissible categories of works.

MI Tank

Sarita, Wage Seeker, SC, Yacharam Mandal, Ranga Reddy Dist.

e. Wage material ration: As per para 7.4, of the revised operational guidelines of

GoI

I. The 60:40 ratios for the wage and material costs should be maintained at

GP level for all works to be taken up by GP (MCC)

II. The 60:40 ratios for the wage and material costs for the works taken up by

all other agencies (DCC) should be maintained at the Mandal

(Block)/Intermediate Panchayat Level.

III. The computer will not allow the works into the shelf at any given point of

time in the given GP and Mandal for the works taken up by MCC and DCC

respectively if the cumulative material component exceeds 40%.

Identification of Works

Creation of durable and productive assets

is one of the key objective. Works are

identified after discussing with the

farmers/village community in the Gram

Sabha. Willingness of the farmers

obtained in case of land based works.

Works are physically inspected and work

wise inputs filled-in by functionaries. The

work wise inputs captured in the mobile

with GPS coordinates, photos and

uploaded. The beneficiaries of horticulture

plantation, indiramma Pachha Toranam,

IHHL for the year 2014-15 shall also be

identified and included in the shelf of

works. Works in IWMP water shed villages

shall also be identified as per the

permissible list of works. The planning team shall sign on the in-put data sheets

having accepted the data captured by them is correct. Only feasible and possible

works shall be identified as per the actual requirements. The work wise required

inputs shall be captured in the mobile along with GPS coordinates, photos and

shall be uploaded. In case of non eMMS GPs, work photos shall be scanned

uploaded and the work wise inputs shall be directly uploaded in the MCC screen.

Area specific works shall be identified and submitted for approval of

CRD/Director, in GPs where works in the permissible list are not available.

Demand Capture & Allocation of Work

Demand is captured every week by Field

Assistant in a prominent place in the village.

Application for work ie., Demand forms

collected. Works are allocated against demand

raised by wageseekers. On weekly meetings -

work allocation letter, unique E- muster ID, e

muster are generated through RAGAS. All the

wageseekers / groups are intimated about the

work allotment through allotment letter. Work

commences based on E-Muster. Attendance is

captured through the mobile application.

Mahinder, Mate, SSS-Bhagat Singh

Job Card No: 50413

Yacharam Mandal, Ranga Reddy Dist.

Process of Demand Capture

3. Block Projects: Vide the ref. 1st cited, Block

and Non Block concept is promoted. Land

Development works are categorized as Block works.

a) Block Creation:

i. Block has to be formed with minimum

of 50 acres and maximum of 250 acres of

contiguous land. The details of the Block shall

be captured in Block Input Data Sheet

(Format-2)

ii. The farmer wise survey number wise

data shall be captured and uploaded through

mobile.

iii. Blocks have to be created in MCC with

the land details downloaded in MCC.

Mandal Computer Center, Yacharam Mandal, RR Dist.

iv. Wherever 50 acres of

contiguous land requiring land

development is not available, the

lands which require development shall

be captured and uploaded through

mobile and the balance land details

adjacent to these lands shall be

uploaded in MCC manually.

b) Existing Blocks: As per the report R. 13. 2, so far 31942 blocks were created with

29.60 lakh acres of land. 1.02 lakh works were sanctioned with,Rs.4020crores and

23.84 core person days.

c) Creation of New Blocks/Editing existing Blocks: Wherever required new Blocks

may be created as for the procedure explained above. In case of new lands to be added

in existing Block, the Block has to be

selected and new land shall be added in

MCC.

4. Non Block Projects: the

permissible works under MGNREGS

are categorized as Block projects and

non block projects as shown in

Annexure-2. The projects shall be

selected as per the local priority of the

Gram Sabha. All works other than Land

based works are categorized as Non-Block Projects.

Generation of estimates

I. The planning team shall handover the filled in input data sheets to MCC

as when planning is completed in the GP II. The CO shall generate the estimates as and when the in-put data sheets

are received to MCC.

III. Each type of work in a block will be generated as one different work with

all the farmers in that block IV. In blocks where new lands are added in the existing block, subject to

requirement similar type of works with new farmers may be generated with

different work ID.

V. Simplified screen will be displayed in MCC with the farmer and land details

in a single screen in which the inputs for different type of works in that

project can be uploaded.

VI. Each work in non block

USE OF ICT IN PREPARATION OF LABOUR BUDGET

RAGAS – Rashtriya Grameena Abhivruddhi Samacharam:

For ensuring transparency & effective implementation of the scheme. Improving the

efficiency in the implementation of the scheme. Comprehensive Online IT software

that provides end-to-end IT solution introduced – ‘RAGAS’

The transaction based software: issues job cards; generates estimates; maintains

shelf of projects; issues work commencement

letters; updates muster rolls; generates pay

orders; generates monitoring reports;

Web reports

It is as a transaction based MIS -

www.nrega.ap.gov.in. It Provides detailed information

covering all aspects of MGNREGS and can access

reports that provide information related to

Employment generation, physical Financial

performance, Beneficiary details, Works related

reports, Expenditure of various types and other

special reports related to works, and Various analysis

reports

Measurement

MusterNREGS Server-

-

MCC

TA

FAE-muster

E-measurement

E-muster verification

E-check measurement

E-Pay OrderGeneration

Web- Exception Reports

E-muster

E-measurement

User can access information upto individual beneficiary level and can access musters

wise details & work wise details. Daily reports, weekly reports, monthly reports, yearly

reports.

E-Muster & Measurement System (eMMS)

For enhanced transparency by

obtaining LIVE data from the

Worksite to Website. The

objective is to arrest distortions

in the programme like Muster

Fudging; Delays in Payments;

Binami Wage seekers; Fake

Measurements and Work

Duplication.

Customised mobile technology for functionaries, Different mobile applications:

Demand Capture, Work Allocation, D-

Muster & Attendance, e-Measurement, e-

muster verification and e-check

measurement deployed.

Electronic Fund Management System (eFMS)

An efficient mechanism for transfer of funds

through online system. Avoids parking/diversion

of funds. Enables access of funds uninterruptedly

to all Blocks/ Mandals. Ensures timely and

accurate payment of wages to the poor and

suppliers. Maintenance of books of accounts

electronically. Ensures better budget control and

financial management. Avoids forgeries and related irregularities of cheques in the

field.

VII. CONCLUSION

Andhra Pradesh hs developed a well designed plan and execution strategy for labour

budget through ICT interventions and a proper organizational setup in which the field

executives are contractual employees enjoying all facilities that a government officials

are having but the job security is always on the basis of performance.

The GP prepare a base year labour budget on the basis of a survey and input form of

job card holders within the GP, eliciting information on the seasonal demand for labour

from each job card holder. This must then be verified by the Gram Sabha (GS). The GP

in this task may be assisted by the Village Cluster for Development (VCD) team

Additional staff dedicated for MGNREGA:

a) at the GP level (one community mobiliser; assistants to the Employment

Guarantee Assistant (EGA) in case of large GPs)

b) at the level of a cluster of GPs (7-8 members) and at the block office The

support team at the cluster level will be jointly supervised by the

Programme Officer (PO) and GPs

The Annual Plan, drawn up on the basis of the Shelf of Projects (SoP) for each village,

will get administrative and technical approvals so that works can be started as soon as

there is a demand for work. The Gram Panchayats (GP) and other PIAs are the

appropriate authorities empowered to start’ works (by issuing work orders) once they

have received administrative sanction for their Annual Plan.

The Labour-Material ratio is to be maintained at 60:40 across all works at the block level

There is need for state-level detailed listing of works permissible under MGNREGA

within the overall framework of the operational guidelines. Even in water-logged flood

plains in the Gangetic basin, desert regions in Rajasthan and the coastal areas in

Kerala, there is room for generation of more employment with appropriate works

Convergences projects may be encouraged provided they address priorities expressed

in the Perspective Plan and are ratified by the GS. There is need for provision of a

crèche within the village for children of MGNREGA workers. MGNREGA may pay

wages for one attendant for every group of ten children

VIII. RECOMMENDATIONS To facilitate work on forest land, State Governments must set up a High Level Task

Force which includes senior officials from the department of Rural Development, Forest

Department and members of the SEGC. This Task Force must recommend a set of

rules and orders to enable execution of MGNREGA on forest land. The Working Group

suggests some institutional options for works on forest land.

Payment of wages should be made by the PIA every week or fortnight on the basis of

the muster roll and the measurement book, without waiting for verification by the PO.

Verification of the measurement book and completion report by the PO should be

required only for making the final payment to workers/suppliers.

In case of a revision of wage or material rates, it should be the responsibility of the DPC

to issue fresh approval of revised estimates for proposed works and annual plans. This

should be done on a suo moto basis by the DPC and the revised estimates conveyed to

PIAs. There is need for appointment of one mate for every 30 workers, instead of the

current ratio of 1:50 . Every state must adopt a dashboard of key indicators which must

be monitored at the highest levels to track MGNREGA implementation. The provision

for administrative costs be increased from the current 6% to 8%. Of this 8%, 6% should

be reserved to support the costs of Planning & Execution at the Block level

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