MGNREGS and NRLM

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J-11012/01/2012-MGNREGA Pt-I)Government of India

Ministry of Rural DevelopmentDepartment of Rural Development

Krishi Bhavan, New D elhiDate: 06.11.2013

To,The Prin cipal Secretaries/Secretaries of StatesDepartment of R ural Development/Panchayati RajAll States and UTs)

Sub: Project for convergence of MGNREGS NRLM and CFT strategy: 250 Blocks.

Sir/Madam

The Ministry has drafted a project for convergence of MGNREGS and NRLM. Theobjective of the project is to synergise the functioning of MGNREGA and NRLM so as tosubstantially enhance the quality of assets being created in the MGNREGS and therebyensure better sustainability of rural livelihoods.

2. he MG NREG S NRLM convergence project will be piloted in 250 mo st backwardblocks of the country. These 250 Blocks will be identified by the State Governments as per

following criteria:a. Poor H uman D evelopment Indicatorsb. Tribal areasc. High population of SCsd. Poo r connectivitye. Having active presence of Civil Society Organisations (CSOs) or Community

Based Organisation.

3. his project was also discussed during the meeting with the State Officials on 29 thOctober 2013.

4. he copy of the Project is enclosed for necessary action with a request to send the listof backward Blocks pertaining to your State fulfilling the criteria mentioned above in para 2before 2 t November 2013 for the first phase of the pilot.

You rs faithfully,

Enclosure as above

--- ---t--6

R. Subrahmanyam)Joint secretary MG NRE GA)


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PROJECT FOR

CONVERGENCE OF MG NREGS, NRLM AN DTHE C FT STRATEGY:

250 BLOC K PILOT

MINISTRY OF RURAL DEVELOPMENTDEPARTMENT OF RURAL DEVELOPMENT

GOVERNMENT OF INDIA


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The Ministry of Rural Development implements the two flagship programmes ofGovernment Mahatma Gandhi National Rural Employment Guarantee Scheme(MGNREGS) and the National Rural Livelihood Mission (NRLM) - both addressing the ruralunemployment and poverty from different facets. This project is to synergize the functioningof the two so as to substantially enhance the quality of assets being created in the MG NR EGS

and thereby ensure better sustainability of rural livelihoods.1 onvergence between MG NRE GS and NRLM

1.1. The provision of livelihood security to the rural poor through the creation of quality anddurable community and individual assets that provide sustainable incomes is one of thecentral objectives of the M GN REG A. This requires participation of com munities in planning,implementation and monitoring of the works. Increasing the participation of women is alsoone of the objectives of the programm e.

1.2. National Rural Livelihood Mission (NRLM) works towards creating robust institutional

platforms of the rural poor, especially women, in the form of Self Help Groups (SHG) andtheir federations, to improve their access to financial services, and thereby build theirsustainable livelihoods. The strength of NRLM has been its ability to energise thecommunities and involve them in building sustainable livelihoods, largely based on land.There is, therefore, a commonality of purpose and natural synergy between both NRLM andMGNREGA.

1.3. In order to use this synergy and improve the implementation of MGNREGS, it has beendecided to achieve convergence between the two co vering the follow ing compo nents:

a. Creation of Awareness and Demand Generationb. Identification and planning for w orks that converge w ith the livelihood plansc. Worksite Execution and Measurementd. Advance Payment of Wages to NREG A w orkers through funds devolved to CBO se. Provision of capacity building and training for all stakeholders involved including

PRIs.

1.4. T he mo de of o perationalizing this convergence will be issued as separate guidelines.

2. Creation of Cluster Facilitation Team s CFT s)

2.1. Based on the 12 t hPlan document, the Operational Guidelines 2013 provided for creationof Cluster Facilitation Teams (CFTs) that would address gaps in MNREGA and thereby

result in creation o f sustainable livelihoods. Cluster facilitation teams a re to be set up to cover15,000 job card holders or an area of 15,000 hectares, which corresponds to the watershedboundaries. The m embers o f the cluster facilitation team mu st have demo nstrated expertise inthe following areas:

Soil and mo isture conservation Agriculture and allied/livelihood activities Community Mobilisation Expertise in preparing estimates, doing m easurements and assessing quality of assets.


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2.2. These CFTs are supposed to help in mobilizing the communities in the programme; andtherefore, there is again a commonality of purpose and natural convergence of the CFTstrategy with the proposed convergence between MGN REGS and NR LM.

2.3. The convergence of MGNREGS, NRLM and CFT strategy is the cornerstone of

achieving peoples' participation, improving the quality of assets, energizing the deliverysystem in a manner that would have a positive impact on elimination of poverty in ruralareas.

3. Areas for the P ilot Project

3.1. This convergence is proposed to be pilot operationalised in 250 most backward blocks.The State Governm ents will identify these Blocks as per the following criteria:

a. Poor H uman D evelopment Indicatorsb. Tribal areas

c. High population of SCsd. Poor co nnectivitye. Having active presence of Civil Society Organisations (CSOs) or Community Based

Organisations (CBOs)

The States will communicate the list of these Blocks before 20 th November, 2013 for the 1 s tPhaseofthe Pilot

4. Operationalizing through Civil Society Organisations CSOs)/CBO s:

The Operational Guidelines of MGNREG 2013 have emphasised the need for involvingCSOs in implementation of the programme so as to improve participation and thereby,overall effectiveness of the programme. Many CSOs/CBOs have built up social capital ofwomen SHGs which can be immediately used for improving the quality of works andreducing delays in payments. The CSOs will also NOT have the constraints that StateGove rnments have in selecting and placing the staff required in the pilot.

The pilot will therefore leverage the strengths of Civil Society Organisations and theSHGs/federations (referred to Community Based Organisations (CBOs)) who will work asResource Organisations along with the MGNREGS implementation machinery.

Minimum eligibility

For each of the Pilot Blocks, the State Governments will select resource organisations whichshould have fulfilled the followingcriteria:

a. In existence at least for the past 5 years.b. Should have staff that can be quickly deployed; or having systems for placing staff for

oeprationalising the pilot project quickly.c. Working on the Natural Resource Management (NRM) either under the MKSP or

IWMP or other watershed programmes.d. Wo rking on the demand side of MG NREG S.

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Suggested list

The State Governments may consider the CSOs/CBOs which are already working in thefollowing fields for this purpose:

a. where CSOs are MK SP partners of NRLMb. where DoLR's watershed project (IWMP) is being implemented in partnership with

CSOs;c. where the CSO has promoted a strong community based organisation such as a SHG

federation with NRLM support; or with support organisations like IFAD/ DFID/WB.

d. where CSOs have become partners with the state government to plan for andimplement MGNREGA.

Deliverables from the CSO s/CBOs

The identified CSO/CBO in the allocated Block should be able to deliver the followingoutcom es after the 3 year project period:

a. Clear implementable plans for MGNR EGS focusing on NRM .b. All SC/ST ho useholds will get at least 75 days work in the financial year.c. At least 25 additional incomes will accrue to the community or the worker

households in 3 years due to the works implemented through M GNREG S.d. At least 75% of all wages are in time i.e. paid within 15 days from the date of closure

of muster roll.

Only such Blocks which are proposed by the State Governments along with the ResourceOrganisation that fulfills the above criteria before 20th November 2 013 will be considered forinclusion in the Pilot for 2014 -15. The total Blocks for the pilot will be limited to 2 50 Blocksfor 2014-15.

5. Role of NRLM

NRLM will facilitate operationalising this convergence through the SRLMs and the CSOsalready working with them or under MKSP. They will handhold the State Governments,focusing on the more backw ard States in identification of the Blocks and the CSO s/CBO s.

6. Role of the Resource Organ isations CSO s/CBOs)

For each Block, there will be a CSO/CBO selected by the State Government as per theguidelines stated above. The R O w ill:

1. Identify, train, place and operate the Cluster Facilitation Teams; and will beresponsible for their functioning an d the final outcom es.

2. Handho ld and help the CBOs (SH Gs and their federations) and train them so that theywill be able to take over the project after the 3 y ear period.

3. Assist and support the Gram Panchayats to effectively discharge their functions laiddown under the MG NREG Act.

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4. Discharge the following in MG NR EG S:a. Creation of Awareness and Dem and Generation:

i. Every landless poor household will demand for work as and when needed.ii. Organisation of the workers into labour groups.

iii. Organisation of Rozgar Divas and registration of demand in every Ward as per

the guidelines issued from time to time.

b. Identification and planning for work s that converge with the livelihood plans:i. Ward level planning: CBOs will participate in the planning process to identify

works from the approved list (as per Schedule I of the Act) that could help themin their livelihoods.

ii. Community Assets: Preparing perspective plans for the development ofcommunity livelihoods based on fundamentals of watershed planning andnatural resource management.

iii. Individual assets: There will be a household livelihood plan (HLP) for everymember of the SHGs focusing on improving the land, water and trees.

iv . Collation of these works and present to the Gram Sabha for approval.v. Assisting in preparing the estimates and getting their technical andadministrative sanction.

vi . All these will be done in close partnership with Gram Panchayats.

c. W orksite Execution and Measurement: The CSOs will deliver the following toensure:

i. Assist each CBO so that they will appoint a Mate at the worksite from amongtheir members and will train the Mates as per the standards prescribed, so thatthey can take measurements and improve the work turn out at the worksite.

ii. Place a technical assistant for every 5,000 active job cards equipped with skillsto plan, measure engineering works taken up MGNREGS to ensure that theworks are measured within 3 days from the date of closure of the muster.

iii. The State Government should issue orders assigning the responsibilities of firstmeasurements to such TA.

d. Payment of W ages to MG NRE GA w orkers can be done through a revolvingfund to be created and maintained by the CBO. CSO will facilitate the creation,and standardise operation of this revolving fund so that CBOs will be able to do thefollowing:

i. Quantify the RF amountii. Given from the NRLM funds as interest free advance

iii. Eligible wages are estimated and recorded on the day muster is closed.iv . Bring transparency and accountability systems through group activities in

arriving at the wages.v. Arrange sufficient cash and disburse wages after closure of work on the last day

of the muster.vi. Cash payment

The wage list will have the account of CBO where the wage will be directlycredited, so that the amount spent from RF is recouped.

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e Provision of capacity building and training for all stakeholders involved includingPRIs: The CFT will facilitate trainings and workshops to all stakeholders such as SHGmembers, frontline functionaries of MGNREGA, PRI representatives etc. especially atthe Gram Panchayat level.

7. Role of State Governments: MGNRE GS1. Establish mechanisms for smooth interface and coordination between the CSOs,

Gram Panchayats and the MGNREGS machinery at the Block and the GP level.2. Ensure that works identified by CBO s and approved by the GPs are given expeditious

administrative and technical sanctions, in any case, not later than 30 days from thedate of convening of the Gram Sa bha.

3. Em power the District Collector to lead the project and resolve difficulties if any facedin its implem entation.

4. Empower the technical assistant of the CSO to record in the M-book by issuingspecial instructions.

5. Ensure conduct of the Rozgar Divas at ward level in which Gram Rozgar Sahayak(GRS) and the Ward member would collect demand for work at the Ward level.

6. Direct all the Programme Officers (POs) and all their functionaries to participate inthe planning exercise alongside the CBO s/CSOs.

7. Convene special Gram Sabha meetings to consider the shelf of works prepared by theCBOs;

8. Issue e-musters and ensure that the GRSs open works as per the demand collected inthe Rozgar Divas.

9. Recognise the 'Mate' appointed by the CBO and empower her to maintain the worksite register by issuing suitable instructions.

10. Conduct check-measurement of the works recorded by the technical assistantthrough their Junior Eng ineer.

11. Make payment after due recording of measurements within 15 days from the date ofclosure of the mu ster.

8. Project period and the Funding

The pro ject period w ill be from 1s t Jan 2014 to 31s t Dec 2016 period of 3 years.

Each RO (CSO /CBO ) will prepare a brief Project stating:

a.The area they propo se to cover under the project: full Block or part of a Block.b. Their strategy for achieving the outcom es.

c. Period-wise deliverables.d. Additional grants needed (over and above what they are already getting under

MKSP/NRLM for this purpose) to deliver the above stated deliverables, anddischarge the above stated responsibilities.

This project should be presented to the District Programme Coordinator (usually the DistrictCollector); and after his/her approval sent to the State Government (with a copy to the NR LMand the Ministry of Rural Development) on or before 30t h November 2013.

NR LM /Ministry of RD w ould issue guidelines for costing in this regard from time to time.

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MGNREGS and NRLM

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