Session II

Building Awareness through Information,

Education and Communication ( IEC)
 NREGS is demand- based, awareness
generation is critical to its implementation
 Key Target Groups:
• Local rural community, special focus : work local
force engaged in manual labour
• Poor rural households
• SC/ST/women/ minorities
• Remote habitations
 Drawing up an IEC Plan
 Preparation of Communication and publicity
material on NREGA processes in simple local
language
 Information dissemination
 An intensive One day orientation of all Sarpanches at the
Block level
 A Gram Sabha in every village to acquaint the local people
with the key provisions of the Act. Participation of
beneficiaries be ensured
 One day be fixed & publicised as Rozgar Diwas
• Facilitate information dissemination and work disposal
 Use of multi media;
• TV and radio where ever possible.
• Print media –local vernacular newspapers.
• Pamphlets and brochures in simple local language with
Graphics.
• Local cultural forms, like puppetry, folk theatre and music
may be used at the village level
 Information dissemination
 Door to door survey and household
contact campaigns
Information counters in the local Market
days using audio-video material
 NGOs to facilitate awareness generation
 A toll free Help Line should be set up to
give information and answer queries on
NREGA either at State or district head
quarters.
 Important aspects of NREGA for
communication
• 100 days of employment can be availed of under NREGA by a local
rural household.
• A Job Card is necessary for demanding employment under NREGA.
• To get a Job Card, a family must apply for it, in writing or orally to
the local Gram Panchayat for registration under
NREGSRegistration, Job Cards and Photographs are free of cost
• A written application by a Job Card holding family to the GP or
Programme Officer is necessary for demanding employment
• Dated receipt of the application for employment must be given by
the Gram Panchayat to the applicant.
• Unskilled manual Work is provided within 15 days of demand.
• If employment is not provided within fifteen days of application,
unemployment allowance will be paid by the State Government

.
 Feed back on IEC
Every Panchayat will give a certificate that it
has convened a Gram Sabha in each
village and acquainted the local
community with NREGA provisions
• Concurrent assessment of the
effectiveness of IEC activities must be
done and any deficiencies that come to
light, must be removed
 Outcome Indicators of effective IEC

Local community aware of NREGA and its key processes:

• How and where to apply for registration
• Use of job card for demanding employment and
recording entitlements, job card with photographs are
free of cost.
• After receipt of job card, local community has chosen to
apply for employment according to its own choice of time
& days
• Dated receipt for application for employment is issued
• Authentic Muster rolls
 Training
Target groups of training are:
• Gram Rozgar Sewak
• Programme Officer
• Engineers
-Block
–District
• IT Personnel
-Block
–District
• *Accounts Personnel
-Block
-District
• PRIs
• GP Sarpanches( Priority)
 Activities under Training
• Training calendar to be drawn up
• Training modules to be calibrated in content and
process according to the different target groups of
training
• Training to be in local language
• Cascade Model for Training. Training of trainers (TOT) at
the District/ Block/GP levels
-District Resource Group
-Block Resource Group
 Key Components of Training
• Enabling Local Communities to know their
Rights under the Act
• Procedures for registration and issue of Job Card
• Procedures for employment application
• Procedures for Planning and Executing Works
• Maintenance of Muster rolls
• Norms of Measurement
• Wage Payment
• Unemployment Allowance
• Update of Job Cards
• Maintenance of Records
• Maintenance of Accounts
• Social Audit
• RTI
 Impact Assessment of training

• Concurrent assessment of the impact of the training

programme to ensure that all key responsible agencies
understand the provisions of the Act, their respective roles
in it and have the skills to implement it.

• Reiterative Cycles of training using the feedback

 Agencies with Critical Functions
• Gram Sabha:
• Panchayats: Principal agencies for planning
and implementation
• Gram Panchayat : basic unit of
implementation.
• In each Block, a “Programme Officer” is to
coordinate the implementation of EGS
• District Programme Coordinator at district
level:Collector /CEO
• State Employment Guarantee Council
Functions related to Demand for Employment
Functions DPC ZP PO IP GP

Building Awareness among *** ****

community
Receiving applications for
registration
****
Verifying ****
applications for registration
Issue of Job Card ****
Receipt of employment application ****
Issue of dated receipt ***
Allocation of employment within 15 ***
days of demand
Unemployment allowance ***
Functions related to Planning of Works
Functions DPC ZP PO IP GP Other Gram
implementing
Sabha
agencies

Convening Gram ****

Sabha for Planning
works
Recommending ****
works(Village)
Consolidating Gram **** ****
Sabha
recommendations
into Village Plan
Forwarding Village ****
Plan to Block
Consolidating GP ***
recommendations
into Block Plan
Functions related to Planning of Works
Functions DPC ZP PO IP GP Other Gram
implementing Sabha
agencies

Recommending ***
works(Inter GP)
Approving Block ***
Plan
Forwarding Block ***
Plan to District
Including works ****
proposals from
other implementing
agencies

Consolidating IP
recommendations
into District Plan
Functions related to Planning& execution of Works
Functions DPC ZP PO IP GP Other Gram
implementi Sabha
ng
agencies
Approving District ****
Plan
Getting Technical **** ****
estimates made
for approved
works
Muster roll issue *****
Muster roll *** **
maintenance
Measurement *****
Wage Payment *** ****
Job Card entries **** ***
Functions related to Record, Report, Review, Redressal
Functions DPC ZP PO IP GP Other Gram
Implementin Sabha
g agencies

Village Registers ***

MPR *** *** ***
Data consolidation *** ***
computerisation,
reporting
Annual Report *** *** ***
Quality monitoring *** *** **** *** *** **** ****
&Control
Social audit *** ** *** ***

Grievance redressal *** ***

Functions related to Capacity development &Fund
Management
Functions State DPC ZP PO IP GP Other
Govt imple
menti
ng
agen
cies
Training *** ***** ***
Personnel **** ****
Placement
Fund Provision & Release of Fund Payment Payme
management release of funds to PO/ Release to s/ nts/
State Share Accounts implementin Accounts Accou
g nts
agencies/Ac
counts
Planning and Executing
Works
 Perspective Plan
• A 5 Year District Perspective Pan
• Perspective Plan has to :
-be village based
-Map Physical Resources available:
-Map social infrastructure available
-Identify Gaps
-Identify works that can be taken up as per NREGA permissible list
-Identify resources available for them under existing programmes
-identify works and resources proposed to be budgeted under
NREGA
-Assess labour demand
-Estimate employment likely to be generated from these works

• Formulating Perspective Plans will require professional expertise as

well as well as participation of local communities and PRIs
• Districts may engage professional agencies
• Separate Guidelines for Perspective Plans will be issued
• Separate funds for making Perspective Plan will be given to districts
 Annual Work Plan and Labour Budget
• The AWPB is the instrumental Plan for operationalising
the Perspective Plan
• The Annual Work Plan and Labour Budget selects works
from the Perspective Plan to be taken up in a year
• Making the Annual Plan provides an opportunity to:
- Revisit the Perspective Pan proposals in a dynamic and
flexible way to accommodate new emergent needs
-Give concrete and precise details to the Works
Proposals:
• The plot numbers of the sites where works are to be
executed should be mentioned, so that each work has a
unique location code.
• Outcomes expected from the works should indicate :
-estimated benefits in terms of person days
- physical improvement envisaged ( land/water
conservation etc)-
- benefits to the community
 Preparing a Shelf of Projects
• The Perspective Plan and the AWPB will take some
time to prepare.
• In order to start work upon Demand, the District
administration will ensure that each village has a shelf
of projects.
• NREGA is open to all households in a village. But
experience has shown that mainly the poor households
come for employment under NREGA.
• Therefore, the number of works that may be required in
a year in a village may be estimated by taking the village
average of BPL families and deriving the total person
days that will be generated by providing 100 days of
employment to all these families.
• Shelf of projects in a village must be adequate to meet
one and a half times estimated demand for employment
for a year
• Each village must have an approved shelf of projects of
at least five works with technical and financial estimates.
 Preparing a Shelf of Projects
• The shelf of projects at the village level will
comprise small projects that can be quickly
executed within one working season
• Priority will be given to works that can be
executed by the Gram Panchayat.
• Only such works that involve more than
one GP may be taken up at the
Intermediate Panchayat level.
• .
 Executing Works

• Displaying the list of approved works at the GP.

• Technical estimates to be displayed at all work-
sites in simple local language.
• Progress report by Implementing Agency to local
vigilance committee.
• Asset register at GP with unique number to each
work to prevent duplication
 Muster Rolls
• Numbered Muster rolls will be issued for each sanctioned work by
Programme Officer (this is a check on false muster rolls).
• Muster rolls will be maintained on the work site by the executing
agency.
• Muster roll must mention Job Card numbers of workers (this is a
check on false names and contractors).
• Muster roll will mention:

• Muster rolls should be read out on the work site during measurement
and wage payment to prevent bogus records
• Entries of the muster roll must be correspondingly recorded in the job
cards of the workers
• If Line departments are identified as implementing agencies, they will
have to be trained in undertaking labour intensive works and the
maintenance of muster rolls for each work.
 Measurement and Payment of wages
• Schedule of rural rates based on work time and motion
studies for labour intensive works should be formulated
for measurement of work out turn.
• Regular measurement and supervision of works to be
done by qualified technical personnel on time.
• Measurement to be recorded in authenticated
measurement books.
• Measurement details should be read out to workers
• Wages may be paid in cash. Wages must be paid in
front of the community.
• Wages may also be paid through Post/ Bank accounts
of wage earners.
• Wages paid must be entered in the Job Cards.
 Tracking number of days of employment
• Unit of measuring person days is a
household and not an individual
• The number of days worked by all the
members of a household whose names are
on the job card person should have been
entered on the muster rolls and the job
card
• The total number of days of a household
so recorded is counted as Person days
• Total number of person days of a
household cannot exceed 100
 Key Documents and Records
 Principal Documents:
• Application forms for registration
• Job Cards
• Application Form for employment
• Muster Rolls with unique number
 Key Registers
• Registration
• Issue of Job Cards
• Demand and provision of employment
• Assets
• Finance
• Complaints.
 Printed documents must be distributed to the GP, Block and District
levels
 All printed documents under NREGA will have the words
National Rural Employment Guarantee Scheme, on top, followed
by the name of the state
 These documents are the basis of NREGA Data Base and Reports
 Their Formats are compatible with electronic processing
 Review & Reports
 Regular Review
• Once a Fortnight on a fixed day at Block by PO with
Gram Rozgar sewaks
• Once a month on a fixed day at District by DPC with POs
• Once a month on a fixed day at State with DPCs
 Collect and discuss information on NREGA. Problem
solving
 Monthly Progress Reports:
- Employment demanded and provided
- Persondays
- Financial status
- Works
 Reports: on line MIS
Establishing the MIS for NREGA
 Monitoring Mechanisms
• Monitors for internal and external monitoring must be
identified and trained at the State/ District and Block
levels
• 100% verification of works at the Block level, 10 % at
the District and 2% at the State level has to be ensured.
• Local vigilance and monitoring committees to be set
up and trained
• Data Analysis and timely remedial measures
• Follow up on feed back
 Monitoring Output and Outcomes
Function Activity Output Outcome
IEC Block Level No of conventions Sarpanches
Convention for held well aware of
sensitising
Sarpanches No of Sarpanches the Act
oriented Implementation
in Conformity
to legal
processes
Gram Sabha to Wage seekers
acquaint local No of Gram aware of their
community Sabhas held Rights and
with the Act
able to
exercise them
 Transparency
• Three Pronged
-Proactive Disclosure
-Social Audit
-Information upon Payment (RTI)
• Proactive Disclosure
All NREGA-related documents to be available for public
scrutiny:
*Key information in local language at GP level
*Muster rolls to be read out & pro-actively displayed at
Gram Panchayat Office.
* Web-enabled MIS www.nrega.nic.in
 Social Audit
• System where local Community scrutinises all records
and procedures of a programme and verifies its
authenticity whether the expenditure incurred has
delivered its objective .
• The Implementing agency is bound to provide all
necessary documents
• Social audit is in addition to the CAG audit
• Should be both concurrent ( of live works) and Post
completion
• Social Audit by Gram Sabha of all works in a Gram
Panchayat
• GP to provide records
• PO and DPC to facilitate through resource support:
planning, training, ensuring access to records, follow -up
 Steps for a Social audit
1). Setting up a Resource Group for social audit at the village level to
facilitate it
-Village monitoring and vigilance committee(5 members may be
selected)
2) Training the resource group:
Initial training should be atleast a week: thorough understanding of
-Act
-Guidelines
-Social Audit Hand book and how to use it for collecting, verifying and
recording information
3). Plan for social audit: To be drawn up by DPC
Conduct social audit twice a year: corresponding to working seasons
4) GPs to be informed three months in advance by PO
5) Records to be made available atleast one month before to the
village social audit team
6) Scrutiny of records: internal cross checking & external verification
with persons/works
7) Reading out the findings of social audit on a specified day in the
social audit forum:
 Steps for a Social audit
Concerned Officials to attend from district administration:
engineers/accountants

8)Public Hearing and evidence

9) Record of proceedings

10) Follow up by District administration. Action taken to be

reported in the next social audit forum
 Grievance redressal system

• Complaints book at GP level

• PO responsible for disposing complaints
within 15 days
• DPC must review on Monthly basis
• Toll free Help Line
 Positioning key personnel
• The District Programme Coordinator( DPC )
• The Programme Officer (P.O.)
• A Gram Rozgar Sewak at the GP level
• Registration
• Verification of registration applications
• Issue of Job Cards
• Receiving applications for employment
• Issue of dated receipts for employment applications
• Reporting Demand to the Programme Officer so that
work may be allotted to the implementing agency
• Informing the applicants to report for work
• Ensuring payments are made on time to the workers.
• Reporting work progress and all other matters to the
Programme Officer on a regular weekly basis.
Key Functional Areas for deployment of additional full
time dedicated personnel
Level Key Functional Areas Personnel to be deployed

GP 1 Gram Rozgar Sewak for each

GP
Block Programme 1 Programme Officer for each
management Block
Works Technical assistants pooled to
service GPs
IT , MIS Computer Assistants
Finance Accountant.
Distt Works Manager, Technical assistants

IT , MIS Manager, Computer Assistants

Level Key Functional Areas Personnel to be deployed

Distt Finance Accounts Manager with

Accounts assistants
Training Training Coordinator

Social Audit, Coordinator

Grievance redresssal
All personnel to be:
•Full time & dedicated to NREGS
•Contract/Deputation
•No permanent posts
 Administrative expenses permissible under
the 4% financial limit
• Information Education Communication (IEC)
• Training
• MIS
• Quality supervision: This includes monitoring and
verification (specially muster roll verification)
evaluation, Social Audit. Quality Monitors at the State,
District and Block levels.
• Setting up grievance redressal systems
• Engaging professional services
• Operational Expenses: Office expenses related to the
implementation of NREGS
• Stationery related to computational processes/MIS.
• Additional Staffing dedicated to NREGS in key
functional areas of the Scheme at the Gram
Panchayat/Block/District levels
 Expenditure not permissible under the 4%
administrative limit

• Salaries/ remunerations/honoraria of
functionaries already engaged by the
Government/ PRIs / any other implementing
agency.
• Personnel, other than indicated by the Ministry.
• Purchase of new vehicles and repair of old
vehicles.
• Civil works
Administrative expenses apart from 4% limit

• Expenditure on workers engaged to look after crèche on

site/carry water
- To be separately charged to unskilled wage cost
-Not to be included as part of the work – measurement.

• One time expenses: Separate from the 4% permissible

limit.
-Preparation of Perspective Plan
- Printing of job cards, photography
-Augmentation of computational facilities at the Block and
district level.
-Almirahs for record-keeping and functional furniture at
GP, Block and District-levels
 Administrative expense as function of total
expenditure
• 4% administrative expense is a function
of the total expenditure under NREGA
resulting into creation of person days in a
financial year
• Need for a Management Plan
• Need to monitor total programme
expenditure and outcomes to leverage
appropriate management support to it
 Fund Management
• Dedicated NREGA accounts in a PSU Bank at
district/Block/GP levels
• DPC/PO and GP Secretary/Gram Rogar Sewak to be
authorised to operate the account.
• Demand Based release of Funds. No fixed installments
• No allocations on a 50-30-20 pattern to GP-IP-ZP as in
SGRY.
• Funds released on specific proposals of the districts
based on physical and financial progress
• Proposal for financial claims to be moved as soon as 60%
of available funds are utilised
• Proposal must be signed by District Programme
Coordinator
 Fund Management
• Documents needed for release of next installment:
– Proposal on prescribed form
– UCs
– Audit report for the last year(due on 30th September), in the
original form
– Bank reconciliation statement, in the original form.
– Requirement of funds to be indicated in the covering letter.
– Recommendations of State Government about specific
amount required
– MPRs on prescribed proforma should have been sent for all
months in the year.
– Non-diversion and non-embezzlement certificate.
– Compliance report of any condition imposed earlier
– Outcomes and output are mentioned in UC.
– Conformity to NREGA Processes
Lessons Learnt from First Phase
of
NREGS Implementation:

Mistakes that must avoided

 Problem: Lack of Awareness
• Basic Problem:
Key Stake holders: Wage Seekers/PRIS/ Block
functionaries lack adequate understanding of
NREGA
• Adverse effect on all NREG Processes:
• Demand Process
Biggest Challenge: Moving from Supply based wage
employment programmes to Demand based NREGA
-No Application for registration and Job Card by wage
seekers
-No Written Application for Employment by wage seekers
-Works opened on administrative fiat. Not wage seekers
demand
 -Generating Awareness through IEC. Civil
Society organisations should be enlisted
- Keeping a shelf of projects ready and displaying
it on GP walls indicating that work is ready if
someone wants to demand it.
- Deploying a full time Gram Rozgar Sewak to
give information, and keep GP premises open
for applications to be submitted
- Training GP/GP functionaries and Block
functionaries on the Act’s Procedures
 Problems: Guarantee Process
Registration
• Refusing oral application
• Registering only Below Poverty Line
families.
• Refusing locally domiciled but migrant
families.
• Denying registration on the basis of
gender, caste and creed.
• Inordinate delay in verification.
 Problem: Job Cards

• Inordinate time gap between registration and

issue of Job Card.
• Issuing a Job Card to each individual.
• Including names of minors on Job Cards.
• Pricing the Job Card.
• Charging the cost of the photographs on the
beneficiary.
• Issuing Job Cards on work sites.
• Defective Job Card format: Does not have
columns for basic essential information
 Dilution of Time Bound Guarantee

• No dated receipt for application by GP

• Delay in allotting employment
• Delay in starting Works
 Processes related to Works: Planning
Problems
• Priorities of the Gram Panchayat are often
superseded by Block and District Panchayats
• Delay in approvals of works
-Through the 3 tier PRI structure
-AS/TS
• Often no or Inadequate Shelf of Projects
• No Perspective Plans
• Duplication of works among different
programmes
 Processes related to Works Execution
Problems
• Inflated Muster Rolls with bogus names.
• Employing non job card holders on works
• Booking non working persons or skilled labour as
unskilled labour and pay him/her out of a portion of
the labouring persons’ wage.
• Measurement Books not maintained. Delay in
measurements.
• Temporary (kachcha) muster rolls persist.
• Minors employed on works
• Contractor- based works.
• Use of machinery.
• Exceeding 40% of material component.
 Monitoring systems
Output and Outcomes

• Records and data not properly maiantained

• Lack of regular review at District/Block levels
• Lack of monitoring and verification by District/
Block functionaries
• No system of external verifications or random
checks
• Delay in reports: Reported data inconsistent,
unauthenticated
• Outcomes: Areas of concern:
-Less than 100 days of employment
- Quality of works and benefits created