Social Audit and Good Governance In MGNREGA

Submitted to School of Good Governance & Policy Analysis

Government of Madhya Pradesh Bhopal

Department of Rural Development

Mahatama Gandhi National Rural Employment Guarantee Act-

Madhya Pradesh

Govt. of Madhya Pradesh, INDIA

Summer Training Report

Project Title

Social Audit & Good Governance in MGNREGA

Submitted By:

Bhawana Gautam

Banaras Hindu University, MABM, U.P (2009-11)

Project Coordinator

Mr. Shiv Shekhar Shukla, IAS

Chief Executive Officer, MGNREGS-MP, Madhya Pradesh

Submitted At:- School of Good Governance & Policy Analysis

Department of Rural Development Mahatama Ghandhi National Rural Employment Guarantee

Act-Madhya Pradesh Govt. of Madhya Pradesh, INDIA

CERTIFICATE

This is to certify that Mrs. Bhawana Gautam, an intern attached to Madhya Pradesh,

Department of Rural Development, under the internship scheme of School of Good

Governance and Policy Analysis has undertaken a study on “Social Audit and Good

Governance in MGNREGA” assigned to her by the department. She was attached with the

department from 5 May, 2010 to 4 July, 2010. The work has been satisfactorily completed

by the intern and a copy of the report has been received.

Mr. Shiv Shekhar Shukla, IAS (Cheif Executive Officer, MGNREGS-MP)

ACKNOWLEDGEMENTS

Foremost, I want to thank my Project Co-ordinator Mr. Shiv Shekar Shukla, IAS, who

substantially helped me to successfully complete my report with his constant advice,

support and helpful discussions. he supported me with his confidence and gave me the

freedom to work independently and on my own responsibility in project and on the report.

I am also thankful to Mrs Roohi Khan, Deputy Commissioner, MP State Employment

Guarantee Council (MGNREGS ) for valuable inputs during summer internships. She has

always bestowed me with her constant advice and help. I am especially thankful to her for

sharing his experience with me in rural development which always enlightened my path

towards better completion of project.

I express my sincere gratitude to pro. H.P. Dikshit ( Director General, School of Good

Governance & Policy Analysis),Dr. Umesh Pandey (Director, Knowledge Management,

School of Good Governance ), Dr. Haider Rizvi ( Director, Policy Analysis, School of Good

Governance) for providing me opportunity to work on this project.

I express my gratitude to Mrs. Richa Mishra mam, Mr Gaurav Agrawal ( P.O ) & Mr Gaurav

khare ( P.O ,Knowledge Management ) for their invaluable help , Constant Motivation and

their ready to help attitude during the execution of my entire Project .

I am thankful to Mr. Ajay Verma ( Media Officer ) , and Mrs. Prema Sharma, for their

constant support and excellent guidance concerning field work . I am thankful for their

constant support and friendly nature.

I am grateful to help, support and direction provided by Panna NREGS, P.O Mr. Tikkaria,

Chattarpur NREGS, P.O MrAjay Singh & Mahoba CEO Ravi Kumar. Many thanks for their

assistance.

I express my sincere thanks to Dr. Saket Kushwaha (Head of department) ,Banaras Hindu

& Dr. Rakesh Singh ( Prof. of Economics Department ) & Dr. H.P Singh Gautam ( Prof. of

Economics Department ) for their guidance & support. Lastly , I thank my parents, Family

member ( Especially my Elder Brother ) and my friends for their constant support in

endeavour.

Thanks,

Bhawana Gautam

MABM, BHU, Batch 2009-1

TRUTH is the greatest national possession. A state , people and a system that suppresses truth or fears to publish it , deserves to COLLAPSE. “Kurt Eisner “

“Satyameva Jayete” (Part of National Symbol-The Ashok Chakra)

Is It True? India is a democracy! People are masters ! Government exits to serve the people!

If it is True Social Audit of NREGA need be welcome

Executive summary

As my internship project I had made a research study on “Social Audit and Good Governance in NREGA”. My study was basically made on the perceptions of stakeholders of NREGS and try to know the view of group of people how NREGS is functioning and influencing their livelihood. For this I had adopt a research method in which this was case studies of Gram- Panchayats where social auditing process have been successful leading to effectiveness of NREGA and Gram- Panchayats where it is so effective. In this study I took two villages (i.e one best and other not so effective) in districts of M.P & U.P & find out gaps & leakages in scheme implementation. I took two districts of M.P ( Chattarpur and Panna ) and one district of U.P (Mahoba ) [Total 4 villages in M.P & 2 villages in U.P ]. Six Gram-Panchayats (In Chattarpur- Maharajgang (successful ) & Panwari (not so effective ) , In Panna- Devri ( successful ) & Rahoniya ( not so effective ) & In Mahoba Nirtala ( successful ) & Urwara (not so effective ) was selected for case study. Sample includes District Programme Coordinator, CEO, Programme Officer, Panchayat members (Sarpanch , Sachiv ) , Gram-Sabha members ( male & female of different groups ), Social Audit Committee members & Labours (male & female ) . Questionnaire had been prepared by me for case study. Questionnaire is basically in checklist form and also design a semi structured interview to know their experience with the process of social audit. Difficulties they faced & positive things which they observed & suggestion which they have. My survey was started from 29 May upto 10 June. As the population under study is mostly illiterate therefore it is imperative to conduct interview & FGD in order to understand the view of group of people how NREGS is functioning & influencing their livelihood After all my research at the end I made some conclusion for some Parameters in % terms like-

Parameters Chattarpur Panna Mahoba

Awareness% 70% 80% 70%

Education% 30% 25% 30%

Attendance% 50% 40% 30%

Women employment per day%

48% 30% 66%

Ability to ask Question% 10% 15% 15%

Politics% 35% 30% 40%

Awareness about right to know%

35% 30% 30%

Information about various govt. scheme & procedure%

40% 55% 45%

From these parameter I made some analysis. Awareness level about scheme among people is high, Attendance of people is about 40-50%, Women employment increase upto some level i.e 40-55% Information about various govt. scheme & procedure is 40- 55% but education level, ability to ASK QUESTIONS, Awareness about Rigt to Know are needed to be improved. Therefore Govt. must made more focus on these points. Also politics must be control at appropriate levels because it create hurdles in Social Audit Process. Positive Impact of NREGS on people are- 1. Migration Controlled at very high rate. 2. Increase in Agriculture Production due to construction of irrigation wells and

ponds. 3. Due to 100 days employment guarantee scheme beneficiaries are able to meet

their needs and become economic self-sufficient. 4. Improvement in their living standard. 5. Water harvesting programmes increase water table level. 6. People generate side business like fishery, dairy, poultry etc due to different

activities under NREGA like construction of ponds, irrigation well , bund formation, tree plantation, road etc which generate additional income.

7. Corruption are controlled to an effective level due to payment of wages through banks.

Suggestions to inputs for betterment of policy and procedure. 1. As far as possible control local politics at village level, and if it is not controlled

then make complaint to janpad (block) level officers. 2. Awareness building regarding the rights & entitlements of the laborers through

trained and literate Social committee members and government officer (associated with NREGS) through focus group discussions.

3. Women in Social Audit committee should be educated at high school so that she enables to understand documents and relevant information and explain it to other women and create awareness among them.

4. Increase bank staff, update the functioning of post office and if possible provide them ATM so that they easily and timely get payment.

5.There should be included one old retired teacher in social audit committee so that he understand the documents, relevant information‟s and accounts and explain it to other members. 6. Social Audit Committee should conduct weekly / monthly social audit after completion of work and give certificate about quality of work. Weaker section can tell their problems about work quality or any irregularities to them if they fear to told in front of Sarpanch.

7. Awareness generation, capacity building through training programmes, where 20-40 people are trained on social audit, develop culture of asking questions and

motivate members of Gram – Sabha to participate actively in decision making process

INTRODUCTION M.P. SCHOOL OF GOOD GOVERNANCE AND POLICY ANALYSIS School of Good Governance and policy analysis is an autonomous institution of Madhya Pradesh Government; its chairman is the chief Minister of MP state and chief secretary of state. It will help in taking assistance of specialist from many prestigious institution like Indian Institute of Managements, Indian Institute of Forest Management , Banaras Hindu Unversity Agri- Business Management , Xavier Institute of Management ,Institute of Rural Management, IIT with due coordination from other important department of Madhya Pradesh to analyze the current structure of government policies and to suggest reforms according to that, "Good governance is epitomized by predictable, open and enlightened policy-making, a bureaucracy imbued with a professional ethos acting in furtherance of the public good, the rule of law, transparent processes, and a strong civil society participating in public affairs” (WorldBank) This institution will work towards the establishment of

good governance in Madhya Pradesh State. Its vision and mission are stated below:

[VISION ] “Equal opportunity to all through Good Governance geared to improve the quality of lives of our People.” [MISSION] “Develop Knowledge Resource Hub and Repository and other strategies, to motivate and encourage strengthening of Good Governance which is more transparent, participative, accountable and focused on improving the quality of lives of our people.” The School of Good Governance and Policy Analysis is to act as a knowledge resource hub with the aim to to facilitate a multi-disciplinary network of governance, To recognize and promote research, good practices, and overall improvement in practices of governance globally, with focus on Madhya Pradesh with the help of professionals, organizations/associations in the relevant areas.To achieve this, the School have the following objectives: [OBJECTIVES] In the Global-Local context, act as “Think Tank” in the field of good governance. To analyze the policies of government and to assess their impact on the targeted groups.

To analyze key issues in good governance, identify problems and to suggest solutions for them, develop action plans and support implementation of these plans.

To create a bank of “Best practices”, methodologies and e-governance programmes and their dissemination. To provide consultancy services for improving prevailing administrative system and their required restructuring.

To identify those areas for change and reform that will make the most positive impact in improving administrative performance and achievements.

To provide institutional mechanism to local, national and international institutions

and stake-holders for people‟s centric administration.

To provide technical support and advisory services to the local bodies, states, national and international institutions in the areas of Programme structuring and implementation, action research, change management and administrative reform. Scheme of Internship for Bright Young Students* AIM OF THE SCHEME To attract, nurture and harness the young intellectual capital for the cause of strengthening good governance

To familiarize the interested and willing bright young students with the overall process of Development of the State along with hiring their services for short term researches connected with analysis of policies, projects, schemes etc. Internship is very different from any regular job in the government. However, over a period of time it will generate a pool of young minds especially oriented to accept new challenges and problems encountered in achieving the goals of good governance. Under this scheme National Rural Employment Guarantee wanted to analyze the better Procedure of Implementation of Social Audit , so intern from SGPA was selected and allotted project titled as:

Social Audit and Good Governance in National Rural Employment Guarantee Act / Scheme.

Contents Particulars Page Section 1 Introduction

1. Back Ground Need for Social Audit in NREGA How it is done by Gram Sabha? Roleof Social Audit under NREGA for Good Governance of the Act/ Scheme.

2. Objective 2.1 Broad Objective 2.2 Specific Objective

3.Scope

Procedure of Social Audit under NREGA adopted in M.P

4.Methodologies

Sampling Plan Questionnaire Design Survey Analysis Comparison Suggestion

Section-2 FINDINGS

5. Findings of Research Findings of Secondary Research

5.1.1 Definition of Social Audit. 5.1.2 What are the basic principles of a social audit that ensure Good Governance in NREGS. 5.1.3 Different stages in social audit. 5.1.4 Integrating social audits into the National Rural Employment Guarantee Act. 5.1.5 What is involved in conducting a social audit for a scheme/programme? 5.1.6 When should social audit be conducted ? 5.1.7 Who will carry out Social Audit ? 5.1.8 What is the role of Gram Panchayat and Gram Sabha in social audit ? 5.1.9 What is the scope of a Social Audit ? 5.1.10 What are the benefits of Social Audit ? 5.1.11 Explore better Procedure of implementation of social audit. 5.1.12 Identify best practices in M.P and other states.

Findings of Primary Research Factors influencing the performance of Gram- Panchayat. Reasons for not seeking information. Factors affecting awareness about Social Audit.

Factors influencing the HEALTH of Grass root l

6 Analysis

7 Social Audit Matrix

8. Suggestions

Strengthen the control system to make supply system more effective. Empower the demand system , the Gram-sabha etc. to have capacity to Ask Questions and conduct social audit.

Section – 4 ANNEXURES

ANNEXURES- I:- Questionnaire ANNEXURES- II:- Coverage Area ANNEXURES- III:- List of Eminent Respondents

.

SECTION- I INTRODUCTION

INTRODUCTION

1. BACKGROUND This section speaks of the need for Social Audit as a Mechanism for Sustainable Programme Delivery and goes on to justify the need of the study.

Need for Social Audit (for Sustainable Development) The Government of M.P has spent millions of rupees on poverty alleviation programs through its various development schemes. Despite this, only a fraction of the money meant for the poor ever reaches them. Most schemes are hijacked by contractors and middle-men or they fall prey to rampant corruption. As a result, development schemes fail to impact and the poor face many hardships and struggle to gain access to the benefits offered by such schemes. In majority of the cases, the powerful and affluent sections of the rural populace corner the best that the Government offers, whether it is in the form of wage employment, pensions, rural housing, land development etc. In Governance, transparency and accountability are often desired. But to ensure the same designing appropriate systems and institutionalizing them has always been a challenge and many a times neglected. The beneficiaries (poor) are rarely made aware of the objectives, their rights and entitlements under the schemes. Hence streamlining service delivery systems and ensuring that transparency and accountability are intrinsic part of governance is very important. It is equally important that the poor for whom the program or scheme is being implemented are made aware of their rights and entitlements. They should also be given an opportunity to participate in the planning, decision making, implementation and monitoring and evaluation of the schemes. In none of the schemes implemented so far have the aspect of ongoing public monitoring ever been initiated. Also, rarely has any government pro-actively disseminated information of the expenditure incurred in a demystified and simplified manner which the common public or beneficiary can understand. Individual beneficiaries have never ever had a formal platform where they could express their views or air their grievance to the administration. Administration has always been seen by the people with distrust rather than as an ally, an amorphous body which is too intimidating for the poor to even attempt approaching it.

It is in this context that Social Audits have been introduced in the NREGS – MP, wherein the primary stake holders (laborers working under the Employment

Guarantee Scheme) actively participate in the audit of the program. The social audit process starts with the filing of applications for information of relevant official records pertaining to the program, trained social audit committee selected from laborers‟ families. The stakeholders and Government officers (associated with NREGS) are trained in the social audit processes and go into the villages and cross check official records through a door to door verification of muster

rolls and physical verification of works. Awareness building regarding the rights and entitlements of the laborers through focus group discussions is an integral part of the social audit process. And on a pre-notified date the reports along with the findings of the social audit are readout in public meetings attended by the labourers, official functionaries, political representatives and the media. The officials respond to the issues which are read out in public and take corrective action.

How Social Audit done by Gram-Sabha?

The most appropriate institutional level for social audit is the Gram Sabha, which has been given „watchdog‟ powers and responsibilities by the Panchayati Raj Acts in most States to supervise and monitor the functioning of panchayat elected representatives and government functionaries, and examine the annual statement of accounts and audit reports. These are implied powers indirectly empowering Gram Sabhas to carry out social audits in addition to other functions. Members of the Gram Sabha and the village panchayat, intermediate panchayat and district panchayat through their representatives, can raise issues of social concern and public interest and demand an explanation.

The Gram Sabha should have the mandate to: inspect all public documents related to budget allocations, list of beneficiaries, assistance under each scheme, muster rolls, bills, vouchers, accounts, etc., for scrutiny; examine annual statements of accounts and audit reports; discuss the report on the local administration of the preceding year; review local development for the year or any new activity programme; establish accountability of functionaries found guilty of violating established norms/rules; suggest measures for promoting transparency in identifying, planning, implementing, monitoring and evaluating relevant local development programmes; and ensure opportunity for rural poor to voice their concerns while participating in social audit meetings Gram – Panchayat Stakeholders

Role of Social Audit under NREGA for Good Governance of the Act/Scheme:-

Social accounting and auditing is a way of measuring and reporting social and ethical performance of an organisation, or a programme or scheme. Social audit is a planning and evaluation method which makes it possible to obtain an overview of internal and external factors that are not included in financial audit of an organization or an activity. It attempts to structure the organization of work in order to achieve the designated goals. In other words, social audit is a systematic and objective procedure by engaging the members in identifying needs and solutions, plan activities, monitor progress and measure its social performance in a comprehensive and participatory manner. Social audit is an appropriate mechanism which builds the enabling conditions for public accountability. The existence of formal mechanisms of accountability does not guarantee actual accountability on the ground because of collusion between those who are

responsible for the performance and those who are charged with their oversight due to the asymmetry of information, the prevalence of corruption etc. It requires demanding, alert and responsible community, civil society and proactive public servants all that is increasingly eroding day by day in the current world. Social audit provides the venue to demand transparency and accountability in all the initiatives from the public system which was otherwise closed to the citizens.

Important guiding principles of social audit

1. People’s participation and multi-perspective approach: Social Audit adopts

an integrated approach, where the views of the various stakeholders involved are taken into consideration and unified and reflected. In addition to this, all individuals and institutions that are directly or indirectly involved in the process of social change are also involved. Social audit process provides opportunity to individuals and institutions to debate and deliberate, and put forth their ideas and perspectives. Further, stakeholders can also represent and express their views freely on a social audit forum.

2. Regular and recurring activity: Social audit must be a regular and recurring

process. Social audits must be planned, scheduled and undertaken regularly. Occasional or

sporadic social audits do not yield the required results. Planned and regular implementation of social audits and information sharing can result in both the implementers and the beneficiaries becoming socially accountable.

3. Information Availability: Information is vital in the process of social audit which aims in

attaining transparency and accountability. Information pertaining to various projects undertaken under programmes recorded in various registers should be made available to the social audit teams for social audit. The Act empowers people to play an active role in the implementation of employment guarantee scheme through Gram- Sabha , social audits , participatory planning and setting up of local vigilance and Monitoring Committees. It was felt that active community participation was particularly important for ensuring transparency and public accountability. Thus, there is a role for all grass roots institutions such as workers associations , local beneficiary committees, self help groups and user groups in spreading awareness, mobilizing workers and in monitoring the implementation of the scheme.

2. OBJECTIVE:-

Broad Objective :- To explore better procedure of implementation of social audit.

To identify best practices in M.P and other states.

Specific Objective To assess the implementation of social audit process in NREGA and its role in ensuring Good Governance.

To assess the factors of ineffectiveness of social audit process and mechanism to control the same.

To assess the gaps and leakages between the desired impact and actual impact and how to provide inputs for betterment of policy and procedure .

3. SCOPE:- Procedure of Social Audit under NREGA adopted in M.P M.P followed the statutory provision under NREGA for social audit of works by Gram-Sabha. Section 17 of NREGA mandates the following – 17(1) Gram –Sabha shall monitor the execution of works within the Gram –Sabha Audit of Panchayat. (2) The Gram – Sabha shall conduct regular social audits of all the projects under the scheme take up within the Gram- Panchayat. (3) The Gram –Sabha shall make available all relevant documents including the muster rolls, bills, vouchers, measurement books, copies of sanction orders and other connected book of account and papers to the Gram – Sabha for the purpose of conducting the social audit . Steps for conducting the Social Audit:-

1. Program officer shall design a Social Audit Calendar and Program and display it on

website. 2. Announcement of Social Audit will be made at least 30 days in advance . 3. Gram – Sabha will elect a Social Audit Committee, workers who have worked in

current/previous works under NREGA of the same Gram – Panchayats and not less than one third members of Social Audit Committee shall be women.

4. Programme Officer shall ensures that all relevant documents , including complete files of the works or copies of them , of works of implementing agencies for jurisdiction of that Gram – Panchayat shall be available for inspection at the Gram- Panchayat .

5. The Gram – Panchayat shall present all necessary information and documents , at least 15 days in advance to the social audit committee.

6. The Social Audit Committee will verify all documents and information. Any person may submit any information to the social audit committee deemed relevant .

7. The Program Officer shall notify in writing all the Public Representative and also concerned staff implementing the NREGA well in advance to ensure that they are kept in informed about the process and are present at the Social Audit.

8. The Social Audit Committee shall read out its findings publicly in the Gram – Sabha and people shall be given an opportunity to seek and obtain information from the Gram – Panchayat and the officials concerned and obtain information from the Gram- Panchayat the officials concerned and verify records.

9. The action taken report relating to the previous Social Audit shall be read out at the beginning of each Social Audit .

10. The Minutes shall be recorded by secretary and signed before and after the completion of the Social Audit by all participants . Any dissent/objections shall be addressed and recorded in the minutes .

11. The Social Audit shall be open to public participation . Any outside individual person apart from the Gram – Sabha shall be allowed to attend the Social Audit as observers without intervening the proceedings of the Social Audit .

12. All Action taken reports shall be filed within a month of convening of the Social Audit . 13. All findings related to contravention of the Act shall be treated as complaint and enquiry

shall be conducted for any dispute in findings. 14. Any Fund deviation shall follow with an action against the concerned person and fund

recovery shall be expedited. 15. While certifying accounts of the NREGS the government auditor shall take cognizance of

any complaint, regarding financial irregularities or misappropriations, raised through a Social Audit before certifying the accounts.

16. All accounts and records relating to the scheme shall be made available for public scrutiny free of cost. Any person desirous of obtaining a copy or relevant extracts therefore may be provided such copies or extracts on demand not later than three working days from the time of application and after paying such fees as may be specified in the scheme.

17. The Social Audit shall be held at least once in every six months.

4. Methodologies :- Research method was mainly to develop case studies of Gram – Panchayats where social auditing processes have been successful leading to effectiveness of NREGA and the Gram Panchayat where it is so effective .In this study I took two villages (i.e one best and other is not so effective in each district) of both U.P and M.P and find gaps and leakages in scheme implementation. For this I take took Districts of M.P i.e Chattarpur and Panna and one district of U.P i.e Mahoba (Total 4 villages in M.P and 2 villages in U.P).

1. Sampling plan:- Six Gram- Panchayats[(In Chattarpur - Maharaj Gang(successful)

and Panwari(Not so effective) In Panna – Devri (successful) and Rohaniya (Not so effective )

In Mahoba – Nirtala (successful ) and Urvara (not so effective) ] was selected for case study. For this I took 16 sample from each village. Sample includes District Programme Coordinator, CEO, Programme officer ,Panchayat members (Sarpanch ,Sachiv) , Gram- Sabha members (Male & Female of different groups toal No.-4), Social audit committee members, and Labours (male & female).

2. Questionnaire design :- Questionnaire is basically in check list form and also

design a semi structured interview to know their experiences with the process of social audit. Difficulties they faced and positive things which they observed and suggestion which they have.

3. Survey :- My survey was started from 29 May upto 10th June. As the population

under study is mostly illiterate therefore it is imperative to conduct interview and FGD in order to Understand the view of group of people how NREGA is functioning and influencing their livelihood .

4. Comparison :- some primary datas of 6 Gram- Panchayat

Particulars Chattarpur Chattarpur

Panna Panna Mahoba Mahoba

Maharajgang

Panwari Devri Rohaniya Nirtala Urvara

Total No. of work undertaken

43 9 7 15 11 11

Total No. of work completed

39 3 3 1 2 11

Total No. of work in Progress

5 6 4 14 9 -

Total No. of Employment (man-day)

150-160 man per day

30-35 man per day

50 man per day

80 man per day

30 man per day

35-40 man per day

Total No. of women employment (man day)

72-80 (48%-50)women per day

6- 7((20%) women per day

15-20(30%) women per day

15 (18.75%)women per day

20 (66.66%)women per day

15-20 (42.85-50%)women per day

No. of Job card holders

958 742 774 480 192 252

Wage payment in No. of days

7-15 days 15 -20 days

15 days 7-15 days 14 days 15 days

Total No. of Members in social audit committee

7 6 6 6 3 4

Total No. of Female members in social audit committee

3(42.85%)

2(33.33%)

1(16.66%)

1 (16.66%) 1(33.33%) 1(25%)

Total expenditure 2009-10 Chattarpur [Maharajgang (2640915)+Panvari (1024611)] = 36,655,25 RS/ Panna [Roheniya(451555)+Devri (504602)] = 9,561,57 RS/ Mahoba [Nirtala (1124963)+ Urvara( 2540920) = 36,658,83 RS/ Type of work Numbers In chattarpur Maharaj gang Ponds - 2 , Irrigation well - 30 , Stop dam - 3 ,Channel - 7 , Road -7 Panvari Irrigation well - 9 In Panna Devri Ponds- 2,Check dam- 2 ,Bund construction- 2, GSB Road -1 Roheniya Irrigation well- 5, GSB ROAD -2 , Stop Dam- 2, Bund construction -5, Ponds- 1 Mahoba Nirtala Irrigation well - 2,Ponds-1, Road -2, Bund construction- 3 ,Channel - 3 Urvara Irrigation well -3, Ponds – 2, Road -3,Channel-4 During survey I also take some interview in order to know their experiences and difficulties which they faced.

Impact :-

8. Migration Controlled at very high rate. 9. Increase in Agriculture Production due to construction of irrigation wells and ponds. 10. Due to 100 days employment guarantee scheme beneficiaries are able to meet their needs

and become economic self-sufficient. 11. Improvement in their living standard. 12. Water harvesting programmes increase water table level. 13. People generate side business like fishery, dairy, poultry etc due to different activities

under NREGA like construction of ponds, irrigation well , bund formation, tree plantation, road etc which generate additional income.

14. Corruption are controlled to an effective level due to payment of wages through banks.

Problems-

1.) Local politics, members of against party creates nusense and hurdles in social audit process.

2.) Lack of knowledge, interest and participation of people – they are not very much interested in any other activities except their livelihood.

3.) Lack of Education at village level. 4.) Lack of awareness about rights. 5.) Low participation and education among women 6.) Lack of information about various Government Schemes and procedure. 7.) Over Dependency on Panchayat and ward members. 8.) Socio- cultural Environment. 9.) Delay in wage payment. 10.) Delay in opening of new accounts. 11.) Members of social audit committee are mostly illiterate and unable to understand

accounts and documents. 12.) Villagers don‟t ask their problems or ask questions in Gram – Sabha meetings. 13.) During decision making process villagers do not show active participation, most of the

decision are taken up by Gram-Panchayat (sarpanch, sachiv). Suggestions to control:-

4. As far as possible control local politics at village level, and if it is not controlled then make complaint to janpad (block) level officers.

5. Awareness building regarding the rights & entitlements of the laborers through trained and literate Social committee members and government officer (associated with NREGS) through focus group discussions.

6. Women in Social Audit committee should be educated at high school so that she enables to understand documents and relevant information and explain it to other women and create awareness among them.

7. Increase bank staff ,update the functioning of post office and if possible provide them ATM so that they easily and timely get payment.

8. There should be included one old retired teacher in social audit committee so that he understand the documents, relevant information‟s and accounts and explain it to other members.

9. Social Audit Committee should conduct weekly / monthly social audit after completion of work and give certificate about quality of work. Weaker section can tell their problems about work quality or any irregularities to them if they fear to told in front of Sarpanch .

10. Awareness generation, capacity building through training programmes, where 20-40

people are trained on social audit, develop culture of asking questions and motivate members of Gram – Sabha to participate actively in decision making process.

SECTION - 2

FINDINGS

5. FINDINGS 5.1 Findings of Secondary Research 5.1.1 Definition of Social Audit.

Social Audit is referred to as, “a process in which, details of the resource, both financial and non- financial, used by public agencies for development initiatives are shared with the people, often through a public platform. Social Audits allow people to enforce accountability and transparency, providing the ultimate users an opportunity to scrutinize development initiatives,” 5.1.2 What are basic principles of a social audit that ensure Good Governance in NREGS. Transparency :- Complete transparency in the process of administrative and decision- making, with an obligation on the government to suo moto (voluntary disclosure of information ) give the people full access to relevant information. Participation:- A right based entitlement for all the affected persons (and not just their representatives) to participate in the process of decision making and validation. Representative participation :- In those rare case where options are predetermined out of necessity, the right of the affected persons to give informed consent, as a group or as individual, as appropriate. Accountability:- Immediate and public answerability of elected representatives and government functionaries, to all the concerned and affected people, on relevant actions or in actor through external, professional, auditing institutions, and are ordinarily conducted without the significant involvement of the affected people and / or the intended beneficiaries. 5.1.3 Different stages in social audit.

Plan Preparation

Selection of Audit Committee Creating favorable climate for Social Audit.

Steps to information gathering.

Social Audit Verification of the information.

Preparing for Social Audit Public Meeting.

Introduction / Inauguration

Chart display Implementation Stage

Public meeting

Discussion

Follow – up

Post-Social Audit 5.1.4 Integrating social audits into the National Rural Employment Guarantee Act.

INTEGRATING SOCIAL AUDITS INTO THE NREGA

For the NREGA, which provides employment as a right, the identification of stages can be best done in terms of the entitlements provided under the act. These are :

1. The entitlement to register one‟s family. 2. The entitlement to a job card. 3. The entitlement to apply for work. 4. The entitlement to participate in the process of preparation of shelf of projects/selection of

sites. 5. The entitlement to participate in the development and approval of technical

estimates/issuance of work order. 6. The entitlement to get work allotted within fifteen days of applying for it. 7. The entitlement to participate in the supervision of works. 8. The entitlement to receive full wages for work done , as per prescribed rates. 9. The entitlement to receive unemployment allowance, if work is not allotted in the stipulated

fifteen days. 10. The entitlement to be involved in the evaluation of the works undertaken.

For each of these stages , identify the vulnerabilities, in terms of what can go wrong, what can be corrupted, what distortions can occur or what biases can creep in. In order to ensure that each individual has opportunity to get all that he/she is entitled to, the process of social audits has been integrated and institutionalized in the process of implementing this Act and certain measures have been provided for to ensure full transparency and participation of all stakeholders. Though the main responsibility of ensuring that all these measures are properly and faithfully implemented would be primarily of the panchayati raj institutions , with Gram – Sabha being involved in all decision makings and in planning , monitoring and evaluation, the people will have to ensure that the PRIs do what is necessary. The sarpanch, the gram sewak, and gram panchayat secretary will be critical functionaries. The junior engineer, the project officer , would also share some of the responsibility.

5.1.4 What is involved in conducting a social audit for a scheme/programme ? A social audit is conducted over the life span of a scheme or programme, and not just in one go or at one stage. The activities that constitute a social audit include:-

a) Making people aware of their rights, entitlement and obligations under the scheme/programme.

b) Specifically , making them aware of their right to participate in the ongoing process of social audit.

c) Making sure that all the forms and documents are in simple, easily understandable language and structure and available in local languages.

d) Also ensuring that all relevant information is publicly displayed on boards and through posters and is also read out at appropriate times for the people , especially those who cannot read.

e) Ensuring that the decision-making process, especially for those decisions that are critical and/ or vulnerable to distortions, is transparent and opened and carried out, as far as possible, in the presence of the affected persons.

f) Making certain that all decisions, along with reasons, as appropriate, are also communicated as soon as they are made to the affected people, and in a manner that makes it easy for them to comprehend.

g) Where there is a need for measuring , inspection or certification, ensuring that randomly selected individuals, from among the affected persons, are involved on a rotational basis.

h) Also ensuring that members of the public and especially those directly affected , are facilitated to inspect and verify records, inspect works and generally monitor planning and implementation.

i) Where required, to have a formal public hearing (jan audit manch) where pertinent information is put before the public and verified in consultation with affected persons.

j) Ensuring that the findings of the social audit process are acted upon as they become available and that apart from addressing the specific issues, systemic changes are also brought about.

5.1.5 When should social audit be conducted ? Social audit can be done at any point of time during the planning and implementation of a scheme/programme. For instance, in the case of National Rural Employment Scheme (NREGS), social audit can be taken up. Planning stage :- to ensure that the Gram-Panchayat Plan is need-based covering productive/investments and drawn up in consultation with community serving the poor and the disadvantaged. Preparation stage:- to ensure that estimates are proper and are in tune with the approved quantum of work. Implementation stage :-to ensure that wages are paid rightly , properly and to right people. After the completion of work :- to ensure that quality of work is in tune with quality and estimated cost.

5.1.6 Who will carry out social audit ?

Social Audit, by definition, is carried out by the community of stakeholders. This will include beneficiaries / participants, implementing agency, Gram-Panchayat representatives etc. The entire Gram-Sabha is expected participate in social audit. Since this may not be always possible, a group can be formed voluntarily (with encouragement by panchayats and officials ) with representatives from beneficiaries, SHGs, village level organizations respected local / community leaders ,youth clubs, marginalized sections (SC / ST / Women ) etc. . This group along with Gram-Panchayat representatives and officials can carry out social audit and present their findings in the Gram-Sabha.

5.1.7 What is the role of Gram- Panchayat and Gram-Sabha in social audit ?

Gram-Panchayat (GP) is the lowest planning and administrative unit for development programmes and schemes. The scheme guidelines specify that GPs should organize social audit ( eg : NREGS ). Sometimes, questions are asked about the credibility and willingness of the GP, which is the implementing agency to organize social audit. The social audit need not always be a specially organised activity or event but an „ on – going process‟ . The procedures of planning and executing schemes / works at GP levels prescribed in the various guidelines have built (though not spelt out specifically ) processes for social audit . Some of them are :- Wide publicity for schemes / programmes among local community, place in the GP plans , list of beneficiaries, plan estimates, funds receipts and expenditure etc. in the Gram-Sabha are part of the social audit process. Instead of making this as a routine stipulation adhering to mechanical exercise, encouraging the community members to discuss and seek clarifications

at the Gram-Sabha itself can turn out to be sort of social audit . Social animators and activists should facilitate this. Formation of Village level Monitoring Committees (VMC ) with genuinely interested members than vested interests, allowing them to perform their assigned functions and requesting them to present their findings and observations in Gram-Sabha is also a form of social audit. Keeping all relevant records, registers, documents etc. in proper and updated manner and making it available for anyone who wants to check and scrutinize is one of the functions of GP. This is all the more important and mandatory in the context of RIGHT TO INFORMATION ACT and Programmes like NREGS. Public display of planned works, estimates, fund flow ,expenses, status of work etc. is also stipulated .Honestly adhering to these expected responsibilities will be facilitating social auditing process in the village .

5.1.8 What is the scope of a social audit ? Social audits are conducted not only on schemes and programmes but also on policies and laws and, indeed, on the functioning of a public agency. The task of auditing is relevant right from the stage when an issue or an approach is identified, through planning, implementation , monitoring and evaluation, and audits are done not just of the decisions taken or actions done (or not done ), but also of the processes followed-

Social Audit As a Monitoring Tool Monitoring is defined as the review, inspection, supervision, verification and control mechanism of the progress of project/scheme implementation with a view to identifying shortfalls, deviations and problems and also the reasons. This will enable the project management team to take appropriate corrective action so as to ensure that the project implementation is proceeding according to Action Plan. When communities are associated with monitoring activity it becomes activity it becomes participatory monitoring. Social Audit mandatory involves both the community and administrative agency and performs all the functions listed above, Social audit is a critical monitoring tool. Social Audit can be taken at any point of time during the implementation and also after the implementation to assess the end results.

Social Audit as Evaluation Tool Social Audit is a new phenomenon gaining ground with the enactment of NREGA . Since the concepts, methods and operationalisation are not widely known; external facilitators have been involved in carrying out social audits. Such social audits are also used as „ hand – on‟ training for civil society members, trainers, government officials etc. As the facilitators are outsiders to the project area / villages, the preparatory work takes longer time. In due courses, Social Audit should be internalized at the village level. Evaluation is defined as an assessment either after the completion of a scheme / project or on an on-going / continuing basis, of the processes and end results / impact of a project / scheme. Usually, evaluation is taken up by an external agency to ensure unbiased and objective assessment of processes and results . A social audit carried out with external facilitators along with local communities could be termed as participatory evaluation .

5.1.9 What are benefits of Social Audit? Social Audit helps in-

Awareness generation

Monitoring the implementation

Impact in processes

Grievances Redressal & follow-up of corrective actions.

Benefits of Social Audit : The Case of NRRGS

1. Awareness Generation Awareness generation through the Social Audit : Information is shared about wage seekers, rights and entitlements under NREGA Muster rolls / financial documents / Measurement Records are read out auditors question the implementing agency on different aspects of the works. The Social Audit reveals High level of awareness of the scheme but not of the entitlements- concept of a demand driven scheme yet to take root: No awareness of the concept of 100 days entitlement or unemployment allowance and other aspects of NREGA . No information wall / transparency display board . Awareness of NREGA increased by 62% post- Social Audit.

2. Monitoring Implementation Processes Monitoring NREGA through the Social Audit. All records (muster rolls, measurement books, financial records, pass books ) are cross verified with scheme participants. Work-sites inspected Field assistant /implementing agency reports.

3. Impact of Social Audit Useful tool to identify the gaps and leakages in scheme implementation which often get left out in the process monitoring and MIS systems.

4. Real time feedback mechanism- creates the space to address small issues that can potentially derail the process identifies capacity gaps that can be strengthened through training.

5. Empowerment : Reading out muster rolls and opportunity for persons affected by corruption to testify in Gram Sabha.

6. Grievance Redressal: Grievance Redressal through the Social Audit. During the audit, Field Assistant and other officials are called to give explanations for discrepancies found wage seekers that have suffered losses due to leakages testify. Complaints are registered. Job Cards and passbooks are distributed on the spot.

5.1.11 explore better procedure of implementation of Social Audit. One of the major challenges faced by the department of Rural Development Department, Government of Madhya Pradesh was mainstreaming and sustaining social audits. This challenge was overcome with a number of activities; policy level as well as ground level activities initiated to institutionalise social audits.

1. Social Audit conducted through Gram- Sabha: The Government of Madhya Pradesh

has conducted social audit through – Gram-Sabha for Social Accountability &Transparency with autonomy and freedom of action. The Gram Sabha, which has been given „watchdog‟ powers and responsibilities by the Panchayati Raj Acts in M.P to supervise and monitor the functioning of panchayat elected representatives and government functionaries, and examine the annual statement of accounts and audit reports..

2. Adoption of Standard Social Audit rules and guidelines: M.P followed the statutory

provision under NREGA for social audit of works by Gram- Sabha. Section 17 of NREGA mandates the following – 17(1) Gram-Sabha shall monitor the execution of works within the Gram-Sabha Audit of Panchayat. (2) The Gram-Sabha Conduct regular Social Audits of all projects under the scheme take up within the Gram-Panchayat.

(3) The Gram –Sabha shall make available all relevant documents including the muster rolls, bills, vouchers, measurement books, copies of sanction orders and other connected book of account and papers to the Gram-Sabha for the purpose of conducting the social audit. In Good Governance, transparency and accountability are often desired.

3. Scaling & Deepening Social Audit Process: Social Audit of works under NREGS – MP

initially started in 18 districts district of the state in Phase – I (Balaghat, Badwani,Betul, Chattarpur, Dhar, Jhabua, Khandwa, Khargone, Mandala, Shadol, Sheopur, Shivpuri, Shidhi, Tikamgarh, Umaria, Satna, Sivani and Dindori). Today these social audits have been scaled to 48 district in Phase – II and then all the 50 districts of the State in Phase – III. Further deepening of social audits was taken up by extending the knowledge on social audits to vigilance and monitoring committee of village, citizens groups and political representatives through training programmes. Social audit appraisals are also undertaken to assess the impact of each social Audit every 15 days/monthly.

4. Capacity Building: In addition to the initial capacity building activity that helped create a

Cadre of trainers and social auditors, regular training programmes are still undertaken on a monthly basis where 20 to 40 people are trained at the mandal level on social audit.

5. Computerization of the NREGS Process: Display it on a website www.nrega.nic.in to

implement and monitor the works at all stages of the programme and also hosting all the information in the public domain has brought in transparency and accountability in implementation. This has directly impacted in the form of reduction in corruption. All stages of the programme – from registration of workers to issue of job cards, preparation of work estimates, muster rolls and payment to workers - have been fully computerized. This has ensured prompt payment to workers avoiding any leaks and corrupt practices.

6. Formal Banking Introduced: In a bid to prevent delay and ensuring transparency in

wage payment, all payments made to the wage seekers under the NREGS – MP are done through post office accounts or accounts opened in banks. This has helped the government to contain corruption to a great level. It is also a move towards institutionalizing transparency and providing information for social audits. More than 7.8 million bank accounts have been opened in Madhya Pradesh.

7. Social audit Committee: Involvement of Social Audit Committee has been one of the key

success factors for social audit. Social audit committee are directly involved in undertaking social audits. These committee also helped in creating awareness among the laborers and ensuring their support to the social audit initiative. Gram – Sabha will elect a Social Audit Committee, workers who have worked in current/previous works under NREGA of the same Gram- Panchayats and not less than one third members of Social Audit Committee shall be women.

5.1.12 To identify best practices in M.P and Other states

Particulars M.P A.P Rajasthan U.P Social Audit is conducted through

Gram - Sabha

Seprate Social Audit unit- Andra pradesh Society for Social Audit, accountability and transparency.

Gram-Sabha and network Civil society Organization called The Rozgar Evum Suchna Ka Adhikar

Gram - Sabha

Abhiyan .

Display of Social Audit practices in website of Indian Government/MIS (www.nrega.nic.in )

www.nrega,nic.in

Creating separate website for social audit- www.socialauditap.com

www.nrega.nic.in

www.nrega.nic.in

Involvement of NGO or Civil Society Organization in Social Audit Process under NREGA

In M.P social audit under NREGA is conducted through Gram – Sabha only. There is no involvement of NGO or CSOs.

Yes In A.P there is involvement of CSO i.e “Andra Pradesh Society for Social Audit, Accountability and Transparency .”

Yes in Rajasthan involvement of CSO called Rozgar Evum Suchna ka Adhikar Abhiyan & Mazoor Kishan Shakti Sangathan (MKSS) .

In U.P Social Audit under NREGA is conducted through Gram – Sabha only there is no involvement of NGO or CSOs.

NO. of Social Audit Done in District

In M.P in 48 districts 15207 social audit done.

In A.P in 22 district 1500 social audit done.

In Rajasthan in 32 district 9119 social audit done.

In U.P in 67 district 31048 social audit done.

Social Audit Committee is formed by workers working under NREGA

In M.P Social Audit Committee is formed by workers working under NREGA &besides this it also includes not less than 1/3rd womens in committee.

5. It is the Participation of village People.

6. This committee is formed by Gram –Sabha.

In A.P Social Audit is done by CSOs.This Society is not formed by Gram- Sabha/Government and it is not necessary that there is participation of village people .There is no reservation for women .

In rajasthan social audit is done through Social Audit Committee as well as CSOs. There is a provision of reservation of 1/3 women in committee.

In U.P Social Audit Committee is formed by workers working under NREGA & there is a provision of reservation of 33% of women in committee.

Training of Social Audit is done through

In M.P government appoint trained nodal officer for

In A.P Social Audit training is done through unemployed literate youths, who

In U.P government appoint trained nodal officer

regular and recurring activity of Social Audit in Gram – Sabha .

are selected in Andra Pradesh Society for social audit, accountability and transparency. There is no provision of appointment of government officers .

for regular and recurring activity of Social Audit in Gram -Sabha

5.2 Findings of Primary Research 5.2.1 Factors influencing the Performance of Gram-Panchayat As per the perception of Respondents, the factors are as under.

Lack of training and able Panchayat Functionaries

Internal politics & infighting

Personal Greed

Religious and Caste affiliation

Attitude of the Sarpanch

Ignorance about development programmes and their Procedures

Interest & participation of locals

Low participation and education among women

5.2.2 Reasons for not seeking information A majority of the sampled primary stakeholders (beneficiaries) do not ask questions and seek information. The primary task of the people living in villagers is to find avenues for earning and supporting their dependents. The various reasons cited by beneficiaries, for not questioning and seeking are as follows:-

Too busy in their daily livelihood activities to think about other problems.

Lack of awareness, interest & initiatives among the village folk.

Women in villages lack the initiatives to question officials and seek information.

The Fear of Government and Panchayat officials.

State of hopelessness Suggestion from Respondents : making GS members ask Questions

Presence of Officials Less dominance of vested groups More Participation of people Information about programmers More involvement of women and weaker sections Display everything on notice board at Gram- Panchayat levels

5.2.3 The factors affecting awareness about Social Audit are as follows:

Lack of Education at Village level Politics at Gram- Panchayat level Lack of interest in people- they are not very much interested in any other activities

expect their livelihood. Lack of awareness about rights

Lack of information about various Government Schemes and Procedures. Over Dependency on Panchayat Socio- cultural Environment.

5.2.4Factors influencing the HEALTH of Grass roots levels Institutions (Gram-Panchayat & Gram-Sabha) The factors influencing the Health of PRIs are both positive and negative, which are presented below based on the study findings.

Institutions Positive Influences Negative influences

Gram Panchayat Involvement & Commitment of Govt. Officials. Fear of Accounting & Auditing Availability of genuine Social Activists. Level of awareness and education of PRI Functionaries Quality of Education & awareness Of Gram Sabha members Level of women empowerment

Implementation of too many programmes Limited Funds, Internal conflict Local politics, Intervention by NGOs, Dominance of Sarpanch, Lack of education Training of PRI functionaries, Proxy functioning of the Panchayat functionaries Vested interest

Gram Sabha Involvement & Commitment of

Govt. Officials Fear of Accounting & Auditing Availability of genuine Social Activists. Level of awareness and education of PRI Functionaries. Quality of Education and awareness of Gram Sabha members Level of women empowerment

Low literacy Limited Awareness and Participation Dominance and over indulgence of Sarpanch Lack of interest & time of villagers Politics & infighting Lack of Training Caste barrier have a significant influence on role played by Gram Sabha.

5.2.4 To assess the gaps and leakages between the desired impact and actual impact and how to provides inputs for betterment of policy and procedure. This section presents the findings on the perception of various stakeholders, including, Villagers / Beneficiaries and Gram Sabha members, Government officials, Panchayat Functionaries, contacted through interview and Group Discussion etc.on various issues, involved in the process of Social Audit.

Serial number

States Madhya -Pradesh Uttar- Pradesh

1.

Awareness about duty of Gram - Panchayat

72% (average of chattarpur & Panna)

70%

Suggestion of improving GP

Regular meeting of Ward Sabha & GP , Supervision by senior villagers or a particular person deputed by govt. . Control over local politics & training ,more functioning of GP.

Regular meeting of Ward Sabha & GP, Awareness generation, Control over local politics, Coordination between GS members.

2.

Suggestion making GS members ask Questions

Awareness building , Participation of all sections, Training, Regular visit of Block/ district levels officials, control over politics.

Training of GP &GS members, Awareness Generation, Regular visit of Block or District level officials at GP. Control over local politics and coordination between GP & GS.

3.

Gap: Expected role & role played by GS , GP

50%- 60% (Chattarpur +Panna)

60%

4.

Role played by GP in Programme Planning

GP is working satisfactorily upon the GS recommendations

Program Planning is done by GP on the recommendation of GS. But there is no proper planning. It helps in employment generation and literacy.

5.

Role played by GP in Programme implementation

It is the implementing agency and directly report to the BDO, Zila Parishad, Sarpanch & Ward members are responsible for Monitoring of the implementing Projects.

All the programs are implemented by GP after the approvals from ZP and block level officials.

6.

Quality of GP functioning, functions, functionaries

GP is playing the role according to guidelines. There is good working culture and coordination between members. Though the negative factors are-

1.) local politics at GP level. 2.) Lack of knowledge,

interest & participation of people

Overall quality is average , some problems like Local Politics , lack of coordination between GP &GS exists.

7.

Factors influencing the performance of Block/GP

Local Politics, Lack of Knowledge , interest & participation of locals , Low participation and Education among women.

Local Politics, Lack of Knowledge, interest & participation of locals, Low participation and Education among women.

8.

Gap: Expected role & role played by GP

There are about 30%gaps mainly in selection of beneficiaries.

There are 70% gaps in the selection of beneficiaries, lack of coordination and motivation for work.

9.

Suggestions

Training, Awareness Generation, Capacity Building of villagers, regular visit by Block & District level officers at GP level, Increasing people participation, Displaying everything on notice board at GP level.

Training, Awareness Generation, Capacity Building of villagers, regular visit by Block & District level officers at GP level, Increasing people participation, Displaying everything on notice board at

GP level

10.

Role played by GS in Programme Planning

Important work towards programme planning is being done but awareness is low

Low awareness of people leads to people to Decisions mainly taken by Sarpanch and dominant groups.

11.

Attendance in GS Meeting

40-50%

30%

12.

Women employment out of total employment per day

30-48%

66%

13.

% of women in social Audit Committee members

16-42%

25-33.33%

14.

Level of aware about development programme & social audit.

50-60%

40%

15.

Awareness about right to know

70%

70%

16.

Ability to ask Questions

20%

10%

17.

Awareness about SA (beneficiaries )

15%

15%

18.

Desirability of SA

Most Desirable

Most Desirable

19.

Feasibility of SA

Feasible

Feasible

20.

Comments on SA

SA is necessary for all government schemes for greater Transparency and Quality

SA is necessary for all government schemes for greater Transparency and Quality

Analysis ( on the basis primary and Secondary Research of findings) Particulars Chattarpur Panna Mahoba Awareness% 70% 80% 70%

Education% 30% 25% 30%

Attendance% 50% 40% 30% Women employment per day%

48% 30% 66%

Ability to ask Question% 10% 15% 15%

Politics% 35% 30% 40% Awareness about right to know%

35% 30% 30%

Information about various govt. scheme & procedure%

40% 55% 45%

Social Audit Matrix

Planned and Actual measurement

Compare the Parameters taken in both states for social audit.

Parameters M.P U.P Remark

Social Audit is conducted through

Gram - Sabha Gram - Sabha

Display of Social Audit practices in website of Indian Government/MIS (www.nrega.nic.in )

www.nrega,nic.in

www.nrega,nic.in

Involvement of NGO or Civil Society Organization in Social Audit Process under NREGA

In M.P social audit under NREGA is conducted through Gram – Sabha only. There is no involvement of NGO or CSOs.

In M.P social audit under NREGA is conducted through Gram – Sabha only. There is no involvement of NGO or CSOs.

NO. of Social Audit Done in District

In M.P in 48 districts 15207 social audit done.

In U.P in 67 district 31048 social audit

done.

Social Audit Committee is formed by workers working under NREGA

In M.P Social Audit Committee is formed by workers working under NREGA &besides this it also includes not less than 1/3

rd

womens in committee.

1.It is the Participation of village People. 2.This committee is formed by Gram –

Sabha.

In U.P Social Audit Committee is formed by workers working under NREGA & there is a provision of reservation of 33% of women

in committee.

Training of Social Audit is done through

In M.P government appoint trained nodal officer for regular and recurring activity of Social Audit in

Gram – Sabha .

In U.P government appoint trained nodal officer for regular and recurring activity of Social Audit in Gram – Sabha

External Stakeholders involvement. Present a comparison of staff involved

in M.P & U.P. Compare their role. Compare- Terms of reference for SA

Team. Activities M.P U.P

Designing & Display of SA Calendar

Programme Officer

Programme Officer

Implementation of Scheme

GP on the recommendation Of GS.

GP on the recommendation Of GS.

Monitoring of Scheme at Village level.

Vigilance and Monitoring Committee.

Vigilance and Monitoring Committee.

Selection & Priority of work given by

Gram-Sabha Gram-Sabha

Selection of SA committee is Done through

Gram-Sabha Gram-Sabha

Members in SA committee are

Workers working under NREGS and beside this also included 1/3 women in Committee.

Workers working under NREGS and beside this also included 1/3 women in Committee.

Verification of work is done through

SA Committee SA Committee

Training of social audit is done through

In M.P government appoint trained nodal officer for regular and recurring activity of Social Audit in Gram – Sabha

In U.P government appoint trained nodal officer for regular and recurring activity of Social Audit in Gram – Sabha

Payment of wages is done through

Bank Bank

Evaluation of work is done through

Technical Officer (To ensure quality of work is in tune with quality & estimated cost.

Technical Officer (To ensure quality of work is in tune with quality & estimated cost

Internal organization Assessment.

Present view point about the social audit of People involved. Compare their assessment on time and cost for social audit.

View point of people M.P U.P

Time Cost Time Cost

Awareness Generation

People demand for work.

Payment of wages through banks

Time is bounded (work is provided within 15 days.) Time is increased (Delay in process of funds transfer in account. Payment of wages done in7-15 days.)

Cost is reduced in Searching labors. Some cost is increased. ( More Technical staff is needed in banks)

Time is bounded (work is provided within 15 days.) Time is increased (Delay in process of funds transfer in account. Payment of wages done in7-15 days.)

Cost is reduced in Searching labors. Some cost is increased. ( More Technical staff is needed in banks)

Implementation of need based project. Implementation of project by GP on recommendation of GS.

Time is bounded ( GS meeting occurs in every 3 months)

Cost is reduced (Discussion Occurs within GS. NO External Agency involved.)

Time is bounded ( GS meeting occurs in every 3 months)

Cost is reduced (Discussion Occurs within GS. NO External Agency involved.)

Monitoring of scheme At village level done through VMC & SA committee.

Time is reduced because they are present in village all the time & continuously watching every activity.

Cost is also reduced.

Time is reduced because they are present in village all the time & continuously watching every activity.

Cost is also reduced

Impact of SA Useful tool to identify the gaps and leakages in scheme implementation which often get left out the process of monitoring and MIS system.

Time is reduced in identifying gaps & leakages because all documents & records are read out in public domain.

Cost is reduced.

Time is reduced in identifying gaps & leakages because all documents & records are read out in public domain.

Cost is reduced

Real time feed back mechanism Create the space to address small issues that can potentially derail the process identify capacity gaps that can be strengthened through training.

Time is reduced

Cost is reduced (training is done at janpad level.)

Time is reduced

Cost is reduced (training is done at janpad level.)

Empowerment: Reading out muster rolls and opportunity for persons affected by corruption to testify in GS.

Time is reduced.

Cost is reduced.

Time is reduced.

Cost is reduced.

Open process & Documentation

Compare the usefulness of documents produced at the end.

Compare the parameters of sharing the output of social audit to villagers in both states.

Parameter (output of SA )

Share with person ( In M.P)

Share with Person (In U.P)

SA will brings transparency & accountability in whole system.

GS,SA committee, VMC, Nodal officer & Officer associated with NREGS

GS,SA committee, VMC, Nodal officer & Officer associated with NREGS

It will improve quality of work & service delivery at level.

GP , GS, Technical officer, Social Audit committee, VMC & P.O

GP , GS, Technical officer, Social Audit committee, VMC & P.O

SA will help improve people participation at GS &GP levels.

Awareness level increase & all information are shared with GP, GS, VMC, Social audit committee & Officer present at meeting .

Awareness level increase & all information are shared with GP, GS, VMC, Social audit committee & Officer present at meeting .

The Primary stake holders (beneficiaries ) will able to gain control over the implementation of Development Programmes undertaken by GP.

Controlled by GS, Social Audit Committee, VMC, &Officer associated with NREGS (Reading out muster rolls & opportunity for persons affected by corruption to testify in GS)

Controlled by GS, Social Audit Committee, VMC, &Officer associated with NREGS (Reading out muster rolls & opportunity for persons affected by corruption to testify in GS)

Grievance Redressal: through SA. During SA, Field assistant & other Officials are called to give explanation for discrepancies found wage seekers that have suffered losses due to leakages testify. Complaint are registered.Job cards and pass books are distributed on spot

Wage seeker,Field assistant & other Officials, GS,GP, SA Committee,VMC, Nodal Officer.

Wage seeker,Field assistant & other Officials, GS,GP, SA Committee ,VMC, Nodal Officer.

Grievance Redressal: through SA. During SA, Field assistant & other Officials are called to give explanation for discrepancies found wage seekers that have suffered losses due to leakages testify. Complaint are registered.Job cards and pass books are distributed on spot.

Time is reduced.

Cost is reduced.

Time is reduced.

Cost is reduced.

Suggestions :-

a. Strengthen the Control System to make Supply System more effective, including

i. Conducting Quality PRI Accounting & Auditing regularly ii. Implementing RTI Act effectively iii. Institutionalising Social audit through effective mechanism.

b. Empower the Demand System, the Gram Sabha etc to have capacity to ASK QUESTIONS and conduct Social Audit.

Specific Recommendations : 1.Health of PRIs (Panchayat and Gram Sabha) is primarily dependent on level of awareness & education of the members. Therefore the recommendation is made for adequate investments in awareness and education of the Gram Sabha & Panchayat members.

The Education and awareness of the Gram Sabha and the common man may be initiated through mass media campaigns including both above and below the line media, such as,

Above the line : TV, News Paper, and Radio Below the line : Wall Paintings, Street plays, Video Vans, & Village meetings etc.

The communication need be focused on the following basic message.

You are NO MORE the SUBJECT , the RULED , You are the elector of the Government, therefore have the rights to ask questions.

If, you don‟t take charge, use your rights / powers and ASK QUESTIONS, you will continue to be RULED (through illegally ), your rights and powers will be snatched away by your elected representatives.

2. Strengthen the institutions for enabling Public/ Gram Sabha to get information :

All the institutions including the PRI, Block, DRDA, State Information Commission to be strengthened in terms of,

Organisation/ institution capacity. In terms of information Storage and distribution mechanism, trained manpower etc.

Willing and attitude of the Top Team of these institution to share information.

3. Support may be provided to Committed and competent NGOs with leadership to play the catalytic role :

It is established fact that any CHANGE in any system including the Public System / Domain, needs external intervention. MKSS is an example in this regard. Therefore, the Government Policy need to be supportative to NGOs working as catalysts for facilitating the process of information sharing and decision- making at the grass root level.

4. Media need be more Rural and Development focused : Traditionally, media is not social, rural or Development focused, may be due to consideration of ad revenue , but the productivity of Media Input for Development Systems is much more than many other systems. The Government Policy need be designed to include the Private Media, the dominant media today to cover Rural, Social issues through policy incentives.

5. Recognise and Reward the members of Supply Side.

Conclusion

Mahatama Gandhi National Rural Employment Guarentee Scheme has been quite successful in all the three districts ( Chattarpur, Panna & Mahoba ) under study and has also shown signs of Progress inceptions four year back.

Social Audit brings transparency & accountability in whole System. It improve quality of work & service delivery at level. People participation at Gram-Sabha & Gram-Panchayat level is

improve. The Primary Stakeholders ( beneficiaries ) are able to gain control

over the implementation of development programmes undertaken by Gram-Panchayat.

Awareness about scheme among people is improve. Migration of people are controlled at very high rate. Corruption are controlled to an effective level due to payment of

wages through banks. Due to 100 days employment guarantee scheme beneficiaries are

able to meet their needs and become economic self sufficient. Education level, ability to ASK QUESTIONS, Awareness about Right

to Know are needed to be improved. Therefore govt. must made more focus on these points.

Politics must be controlled at appropriate level because it create hurdles in Social Audit Process.

SECTION–4.

ANNEXURES

ANNEXURES I :- Questionnaire ANNEXURES II :- Coverage Area ANNEXURES III :- List of Eminent Respondents.

Coverage Area

STATE NAME

DISTRICT NAME OF Gram Panchayat

Madhya - Pradesh

Chattarpur Maharaj Gang

Panvari

Panna Devri

Rahoniya

Uttar- Pradesh Mahoba Nirtala

Urvara

List of Eminent Respondents Name of Districts Name of

Respondent Designation

Chattarpur Mr. R.P Nayak D.P.C

Mr. Ajay Singh C.E.O

Mr. Mishra A.P.O

Mr. Mahadev Sarpanch

Mr. Narendra kumar

Jain

Secretary

Mr. Mahendra kumar Rai

GS Member (School Teacher )

Mrs. Savita Namdev GS Member ( Mate )

Mrs. Kala Bai GS Member ( Labour )

Mr. Mahadev GS Member (Labour

)

Mrs. Ratan Bai SA Committee Member ( Labour )

Mr. Kailash kumar bansar

SA Committee Member ( Labour )

Mrs. Chatto bai SA Committee Member ( Labour )

Mr. Kailash Kumar Sen

Labour

Mrs. Kando Labour

Mrs. Dueji Bai Labour

Mr. Ramesh Rakewar

Panch

Mr. Ajudhi Ahirwar Sarpanch

Mr. Kailash Sahu Secretary

Mr. Devshankar Lodhi

GS Member ( labour )

Mr. Damodar Lodhi GS Member ( labour

Mr. Mahilal Pandit GS Member ( labour )

Mr. Dhan Prasad Namdev

GS Member ( labour )

Mr. Herbal Lodhi SA Committee Member ( labour )

Mrs. Lalita Bai SA Committee Member ( labour )

Mr. Devi Prasad Lodhi

SA Committee Member ( labour )

Mrs. Mahilal Ahirwar SA Committee Member ( labour )

Mrs. Rodhi Ahirwar GS Member ( labour)

Mrs. Bani Bai GS Member ( labour)

Mr. Mulayam Singh Rajput

GS Member ( labour)

Panna Mr. Prabhakar Tikariya

Programme Officer

Mr. S.P Singh Parihar

Additional Programme Officer

Mrs. Lakesh Rani Sarpanch (Rahoniya )

Mr. Rajesh Singh Panch

Mr. Ram Kori Sachiv

Mr. Raj Kumar GS Member ( Labour )

Mr. None Singh GS Member ( Labour)

Mrs. Kanchan Bai GS Member ( Labour)

Mrs. Shayama Bai GS Member ( Labour)

Mrs. Keemati Shekhrani

SA Committee Member ( Labour )

Mr. Sitaram Nandi SA Committee Member ( Labour )

Mr. Maan SA Committee Member ( Labour )

Mr. Sonalal SA Committee Member ( Labour )

Mr. Mardan Singh GS Member ( Labour)

Mr. Rammu GS Member ( Labour)

Mr. Bhuju GS Member ( Labour)

Mr. Babbu GS Member ( Labour)

Mr. Mishram GS Member ( Labour)

Mr. Bhujvant Singh GS Member ( Labour)

Mrs. Gita Devi Yadav

Sarpanch ( Devri )

Mr. Ram Kumar Upadhaya

Secretary

Mr. Hari Singh Rajput

GS Member ( Labour)

Mr. Palash Singh Yadav

GS Member ( Labour)

Mr. Sipahiya GS Member ( Labour)

Mrs. Raja Bai GS Member ( Labour)

Mr. Akku Kamaniya GS Member ( Labour)

Mr. Baldev Bhadariya

GS Member ( Labour)

Mr. Deklu GS Member ( Labour)

Mrs. Mamta Bai GS Member ( Labour)

Mr. Manav Durga Prasad Upadhaya

SA Committee Member ( Labour )

Mrs. Shila Chaturvedi

SA Committee Member ( Labour )

Mr. Ghasoti Godh SA Committee Member ( Labour)

Mr. Mithuva SA Committee Member ( Labour)

Mahoba Mr. Ravi Kumar District Programme Officer

Mr. Sulak Chandra Block development Officer

Mrs. Asha Rani Pradhan ( Nirtala )

Mr. Narad Prasad Verma

Secretary

Mr. Suresh Kumar GS Member ( Labour)

Mr. Bhavani Deen GS Member ( Labour)

Mr. Chedalal GS Member ( Labour)

Mr. Kallu Badna GS Member ( Labour)

Mr. Nand Ram Kanta

GS Member ( Labour)

Mr. Vishvanath GS Member ( Labour)

Mrs. Paan Kumar GS Member ( Labour)

Mrs. Maya GS Member ( Labour)

Mrs. Girjarani SA Committee Member ( Labour)

Mr. Bala Deen SA Committee Member ( Labour)

Mr. Bhagvati Prasad SA Committee Member ( Labour)

Mr. Babbu SA Committee Member ( Labour)

Mr. Tirath Singh Pradhan (Urvara )

Mr. Babulal ji Scretary

Mr. Santosh Singh Yadav

GS Member ( Labour)

Mr. Chandrabhan vishvkarma

GS Member ( Labour)

Mrs. Yashoda GS Member ( Labour)

Mrs. Bhola GS Member ( Labour)

Mr Hari Prasad GS Member ( Labour)

Mr Siya Ram GS Member ( Labour)

Mr. Talal SA Committee Member ( Labour)

Mr. Chenna Ahoja SA Committee Member ( Labour)

Mr. Bhuram SA Committee Member ( Labour)

Mrs. Vidhya SA Committee Member ( Labour)