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A procedural study of MGNREGS in Madhya Pradesh

to identify delays in wage payment

Project Report

Atal Bihari Vajpayee Institute of Good Governance & Policy Analysis

Project Team

Special Guidance

1. Shri Padamvir Singh, Director General

2. Shri Akhilesh Argal, Director

Guidance

Shri Madan Mohan Upadhyay, Principal Advisor, Centre for Social Sector

Development

Project coordinator

Dr. Mangala Gowri M S, Deputy Advisor, Centre for Social Sector Development

Support Staff

1.Megha Lakshakar (Research Associate)

2. Manisha Chauhan (Data Entry Operator)

[A procedural study of MGNREGS in MP to identify delays in wage payment] 2017

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Table of contents

Contents Table of contents .......................................................................................................................... 2

List of Abbreviations.................................................................................................................... 4

Foreword ...................................................................................................................................... 5

Executive Summary ..................................................................................................................... 6

1. Introduction ............................................................................................................................ 11

1.1Background ....................................................................................................................... 12

1. Issuing of muster roll ..................................................................................................... 12

2. Marking attendance of workers ...................................................................................... 12

3. Valuation of muster ........................................................................................................ 12

4. Preparation of wage list .................................................................................................. 13

5. Janpad level processing .................................................................................................. 13

6. Generation of Fund Transfer Order (FTO) .................................................................... 13

7. Public fund Management System (PFMS)- ................................................................... 13

8. At the level of the banks ................................................................................................. 14

1.2 Identified Stakeholders .................................................................................................... 16

1.3 Objectives of the study .................................................................................................... 16

1.4 Rationale of the study ...................................................................................................... 16

1.5 Methodology .................................................................................................................... 18

1.6 Sample size ...................................................................................................................... 20

1.7 Limitations of the study ................................................................................................... 22

2. Data Analysis and Interpretation ............................................................................................ 23

2.1 Findings of the pilot study ............................................................................................... 23

2.1.1 At the level of JP ....................................................................................................... 24

2.1.2 At the level of G P .................................................................................................. 25

2.2 District Profiles ................................................................................................................ 26

2.2.1 Alirajpur .................................................................................................................... 26

2.2.2 Balaghat..................................................................................................................... 29

2.2.3 Betul .......................................................................................................................... 31

2.2.4 Chhatarpur ................................................................................................................. 34

2.2.5 Chhindwara ............................................................................................................... 35

2.2.6 Datia .......................................................................................................................... 38

2.2.7 Dhar ........................................................................................................................... 41

2.2.8 Dindori ...................................................................................................................... 44

2.2.9 Harda ......................................................................................................................... 46


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2.2.10 Jhabua ...................................................................................................................... 50

2.2.11 Mandla..................................................................................................................... 53

2.2.12 Rajgarh .................................................................................................................... 56

2.2.13 Ratlam ..................................................................................................................... 59

2.2.14 Sagar ........................................................................................................................ 61

2.2.15 Shadol ...................................................................................................................... 64

2.2.16 Singrauli .................................................................................................................. 67

2.2.17 Tikamgarh ............................................................................................................... 70

2.3 Consolidated trends.......................................................................................................... 73

Table 68: Delays identified in the chosen districts............................................................. 73

2.3.1 Stage 1 ....................................................................................................................... 73

2.3.2 Stage 2 .......................................................................................................................... 76

2.3.2.1 Other problems .......................................................................................................... 77

2.3.3 Stage 3 .......................................................................................................................... 81

2.3.4 Stage 4 .......................................................................................................................... 84

2.4 Problems during DBT ...................................................................................................... 84

2.4.1 Issues and challenges at the level of Banks ............................................................... 84

3. Findings as per objectives ...................................................................................................... 87

4. Recommendations .................................................................................................................. 89


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List of Abbreviations AAO Assistant Accounts Officer

AE Assistant Engineer

APO Assistant Project Officer

BC Banking Correspondent

CEOJP Chief Executive Officer, Janpad Panchayat

CEOZP Chief Executive Officer Zila Panchayat

CPSMS Central Plan Scheme Monitoring System

DBT Direct Benefit Transfer

FTO Fund Transfer Order

GP Gram Panchayat

GRS Gram Rozgar Sahayak

IBA Indian Bankers Association

JP Janpad Panchayat

MB Measurement Book

MGNREGA Mahatma Gandhi National Rural Employment Guarantee Act

MIS Management Information System

MR Muster Roll

NEFT National Electronic Fund Transfer

NPCI National Payment Corporation of India

PFMS Public Fund Management System

RBI Reserve Bank of India

UTR Unique Transaction Reference


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Foreword Atal Bihari Vajpayee Institute of Good Governance and Policy Analysis (AIGGPA)

undertakes research on various schemes and policy issues and works in collaboration

with concerned Departments to provide strategic inputs and suggestions. The core staff

of the Institute co-ordinate and execute the research programmes. The institute

conducts extensive brain storming sessions and workshops with subject matter experts

in order to validate the findings.

The past year witnessed many delays in the payment of wages of MGNREGS workers.

MGNREGS caters to the lowest strata of people in the society. The scheme is designed

to provide social security through asset creation. So delay in the payment of wages in

such a scheme would be impacting the most vulnerable section. The scheme in its

present form touches the lives of over one crore people in Madhya Pradesh alone. So

AIGGPA decided to take up an inquiry into the various stages of the scheme and look

into the reasons and duration of delay. A study was designed with this end in view. We

are happy to present the findings of our study in this report. We hope that the report

helps in addressing the problem of delay in wage payment in MGNREGS as well as in

other payments under Direct Benefit Transfer schemes.

Padamvir Singh

Director General


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Executive Summary

Mahatma Gandhi National Rural Employment Guarantee Scheme (MGNREGS) is a

mammoth scheme involving over 45.35 lakh active workers. The scheme has provided

employment to 39.78 lakh individuals in 2016-17. Around 6.36 lakhs of works have

been taken up in the present financial year. Madhya Pradesh has incurred an

expenditure of about 2824 crores ( 2,82,380.44 lakhs) so far and wage payment alone

constitutes around 1672 crores ( 1,67,175.27 lakhs). June 20, 2016 was the date, base

lined for the study. The data on wage payment suggests that for the year 2016-17, out

of 348 crores (Rs.34801.28 lakhs) to be disbursed, 210 crores (21,024.84 lakhs) have

been delayed as on June 20, 2016. The final reference date for the study is January 28,

2017. As on that date, out of 1115 crores (111454. 45 lakhs) set for wage payments,

642 crores (64223.95 lakhs) were delayed, involving individual transactions to the

tune of 7,26,1077 leading to delay in 58%

As the delay in payment affects a whole cross section of people, it is but natural to look

into the nature and causes of delays and suggest possible solutions. Hence Atal Bihari

Vajpayee Institute of Good Governance and Policy Analysis (AIGGPA) undertook an

exploratory study of the procedures of MGNREGA to understand the nature, time and

causes of delay. Evidence for Policy Design, an offshoot of Harvard University also

showed interest in the research and collaborated with AIGGPA in this regard.

17 districts were identified for the study and geographically they covered all portions of

Madhya Pradesh. 10 of them were those districts with higher amounts of pendency in

wage payments (amount wise), 3 of them had relatively lesser amount of pendency and

4 of them were added on request from EPoD. 1 GP each from 3-4 blocks of each of the

sampled district was identified on a random basis. In the first round, the entire process

of DBT was broken down into various stages. From each of the selected districts,

around 50-60 musters were chosen through random purposive sampling. The musters

belonged to the selected GPs. All of the chosen musters were delayed ones. Their time

frame varied between April 2016 to June 2016. That particular time frame was chosen

as delay due to financial insufficiency had to be ruled out.

An end to end analysis of these musters were done and average delay in each stage was

calculated block wise for each district. The delay at the level of banks was done on a


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macro basis on the same musters. Detailed interview schedules were prepared for all

stake holders and a pilot study was conducted in two GPs of Bhopal district in order to

validate the schedules. Field investigators from the respective districts were oriented in

a one day session in AIGGPA to interview the field level stakeholders so that

procedures pertaining to particular districts could be captured.

The data obtained is given in four phases.

2.1 Findings of the pilot study: In the first section, the findings of the pilot study have

been enlisted which will provide a direction into the way the study has been conducted.

2.2. District profiles: Every district has been taken singularly to identify the stages of

delay and then an attempt has been made to corroborate the secondary data with the

inputs from the field. Here processes from stage 5 to 6 i.e. from Janpad level to

beneficiary bank account have been omitted as they are done on a centralized platform.

2.3. Consolidated trends: This section is basically the consolidated data from the field

where the procedures, problems, opinions, suggestions etc. have been looked into from

a macro perspective.

2.4 Problems during DBT: A workshop with the banking sector was conducted on

November 26, 2016 at Narmada Bhavan, Bhopal to discuss the existing problems and

to understand the implementation challenges of the bankers. This section tries to

encapsulate the problems from stage 5-stage 6.

Overall findings from the study are given in the box below.

In the conclusion part of the report, certain recommendations have been given to

address the delays identified.


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Overall findings from the study are as follows.

At the level of Gram Panchayats

1. Maximum delay happens at the stage of GRS and CEO Janpad. 88% of districts

showed maximum delay at the stage of muster closure and valuation by sub-engineer.

47% of districts showed the second most delay in wage list generation. 35% of districts

showed delay at the level of second signatory of FTO which ranked 3rd in terms of delay.

2. No fixed protocols are being followed for issuance of muster from JP.

3. The interval between muster closure and valuation has not been scheduled at least in

81% of the GPs.

4. Contrary to the guidelines in MGNREGA, electronic filling up of attendance is also

done after valuation.

5. It is very difficult to track the exact date of valuation, as the sub-engineer is not in the

loop of the website.

6. By making the entire system of valuation manual, no uniformity of procedures is seen

across districts and the GRS has to spend on an average of 1 day a week in JP.

7. The work distribution of Sub- engineers is another matter of concern as the maximum

number of villages allotted to a sub-engineer is 25 and minimum 7.

8. The GRSs also complained of work load as they are used as conduits for execution of

many other schemes.

At the level of Janpad Panchayat

9. Considerable amount of time of AAO, APO and CEOJP are also taken up in following

up and tracking musters.

10. There have been persistent complaints from GRS, AAO and CEOJP regarding the

MGNREGA website, which is very slow.

11. Many AAOs complained that they are forced to generate FTOs at night as the website

does not function properly in the day due to simultaneous log ins.

12. CEOJP is not able to process FTOs in times of insufficient funds.

Technical Problems

13. Network connectivity and infrastructural problems are other technical issues that

emerged in our survey.


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1. Introduction

14. The MGNREGS portal is very slow and at times of mass simultaneous log ins, it

does not function.

At the level of Banks

15. Most of the Jan Dhan accounts get frozen on zero balance due to incomplete KYC

details and this creates problems during DBT.

16. AADHAR seeding of bank accounts have been very slow. There are 2060173 joint

accounts and hence getting the right bank account of the beneficiary, which is

AADHAR seeded in NPCI is a problem. NPCI acts a common data base for all the

banks.

16. PFMS also causes delay in processing the FTOs and PFMS does not come under the

ambit of MGNREGA council

17. At the level of banks also, there are delays in processing FTOs and there are delays

in sharing the response after processing.

18. In certain cases the responses shared by banks after FTO processing have gone

wrong. One reason for the same is that delayed response by banks are often treated by

NPCI as positive response.

19. There is no public domain to know the status of transactions done by NPCI. As on

date, they do not have a UTR number for transactions and if any investigation need to be

done the RRA number (which is their internal numbering system) is the only option

available.

20. Banks face problems when the amount comes back to them from the beneficiary

bank. Due to the change in the UTR no: they are not able to trace the funds back to the

FTO.

21. Beneficiary banks were not aware of the disbursement incentives provided by the

government.

22. There is no efficient mechanism to assess the performance of Banking

correspondents in rural areas.

Major Recommendations

The sub- Engineer could be co-opted into the loop of the software to bring in

more accountability in that stage.

Alternately, payment process could be started on the basis of self attestation by

the Gram Panchayats.


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At the level of banks, a protocol could be introduced where NPCI need to validate

delayed responses before treating them as positive responses.

A revision in the NEFT protocol is also advised in order to trace funds back to the

FTO.

A list of technical nodals of the bank could be created and circulated


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1. Introduction

The Mahatma Gandhi National Rural Employment Guarantee Act (MGNREGA) aims

to enhance livelihood security of people in rural areas by guaranteeing hundred days of

wage employment in a financial year to rural households whose adult members

volunteer to do unskilled manual work. Being a scheme for social security, it plays a

vital role in the rural economy. The goals of the act are as follows.

I. Social protection for the most vulnerable people living in rural India by

providing employment opportunities

II. Livelihood security for the poor through creation of durable assets, improved

water security, soil conservation and higher land productivity

III. Drought-proofing and flood management in rural India

IV. Empowerment of the socially disadvantaged, especially women, Scheduled

Castes (SCs) and Schedules Tribes (STs), through the processes of a rights-

based legislation

V. Strengthening decentralized, participatory planning through convergence of

various anti-poverty and livelihoods initiatives

VI. Deepening democracy at the grass-roots by strengthening Panchayati Raj

Institutions Effecting greater transparency and accountability in governance

The past year witnessed huge amounts of pendency in wage payments. Only 43% of

labour payments have been generated within 15 days of muster closure. Delay in wage

payment is in a way an infringement of rights of the workers. This study is intended to

understand the procedures starting from issue of musters to wage payment and see if

there are any issues relating to specific procedures so that mechanisms can be identified

to expedite wage payment and bring them within the optimum time frame.

Madhya Pradesh has 51 districts which are further divided into 313 blocks and 22,813

GPs. As on January 28, 2017 (the date frozen for data consolidation), MP had 61.35

lakhs job cards issued. 161.25 lakh workers were using job cards. In the financial year

2016-17, 45.35 lakh job cards have remained active and 39.78 lakh individuals have

been provided employment.


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Regarding the number of works taken up by the state, new and spill over works were to

the tune of 6.36 lakhs in the present financial year. Of them 3.63 lakhs works are

ongoing. 2,72,445 works have been completed.

The central Government has released funds amounting to 2856 crores (285603.08

lakhs) and MP has a utilization percentage of 84.28. The amount released as wages is

1672 crores (1,67,175.27 lakhs) (as on 28th January 2016). The rest of the amount was

used for material payments as well as skilled labour payments.

1.1Background

In order to devise a strategy for procedural study, it is necessary to understand the

stages through which the programme operates. This will not only help us understand

the scope of research but also identify the stakeholders involved. After the sanction of

work and work plan made, the entire process goes through the stages mentioned below.

The pertinent issues in each stage that need to be looked into have also been included.

1. Issuing of muster roll- Muster roll is the list of applicants selected to work on a

particular project. The first issue that needs to be addressed is the time when muster

rolls are prepared. If the Gram Panchayat(GP) is resorting to simultaneous preparation

of muster rolls along with ongoing work, it can cause delay in valuation.

2. Marking attendance of workers - What is the mechanism adopted for marking

attendance? Is there any delay in this stage?

3. Valuation of muster- The muster gets closed on the seventh day. The sub-engineer

evaluates the muster after its closure. In an ideal situation, the evaluation of the muster

should be conducted on the eighth day. But there is a skewed ration between sub-

engineers and GPs. On an average, one Sub Engineer has been allotted over 10 GPs. So

the touring of the sub-engineer has to be structured in such a way that he visits each of

his allotted G P immediately on the day after muster closure. Other factors that need to

be considered here are the distance between GPs and any other reasons that may cause

delay in valuation.


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4. Preparation of wage list- The Gram Rozgar Sahayak(GRS) prepares an electronic

wage list.

5. Janpad level processing- The wage list is sent to the Janpad office where it goes

to the Assistant Account Officer(AAO). The AAO calls for the muster evaluated by the

sub-engineer, verifies the signature and then directs it to CEO Janpad. Here a priority

rule has been set, where the AAO is mandated to look into the wage lists on a first

come first serve basis. So in case of improper documentation, the AAO is forced to

wait till the documentation arrives of those wage lists which have been sent first before

graduating to the next list.

6. Generation of Fund Transfer Order (FTO) - The AAO generates the Fund

Transfer Order (FTO) which is subsequently signed by the CEOJP.

7. Public fund Management System (PFMS)- The FTO signed by the CEOJP is

sent to the PFMS. The PFMS performs the following functions.

Maintain a centralized database of all implementing agencies administering various

Schemes at Centre / State /District /Block / Panchayat/Village level and managing

government funds.

Report on details of beneficiaries receiving payments, including details of Aadhaar

based payments, geographical location, total Scheme-wise amounts received etc.

Capture activity-wise/component-wise fund utilization by implementing agencies at

various levels under various Schemes of Government of India.

Provision of financial services in an integrated manner including a validated bank

reconciled statement on utilization of funds to all implementing agencies.

As the wage list enters the PFMS, a Central Plan Scheme Monitoring System (CPSMS)

id is generated which is used in subsequent transactions with the bank.


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8. At the level of the banks- The FTO then travels to the data centre in Bombay from

where money is transferred to concerned bank accounts. The bank follows AADHAR

enabled payment through National Payments Corporation of India (NPCI). It is

mandatory for the applicant to give only that bank account which is AADHAR enabled.

For the time being as AADHAAR seeding is not yet complete, bank accounts not

linked to AADHAR are also accepted. But once the linking has happened, the funds

would get deposited only in that account whose record is available with NPCI.

National Payments Corporation of India (NPCI) is an umbrella organization for all

retail payments system in India. It was set up with the guidance and support of the

Reserve Bank of India (RBI) and Indian Banks’ Association (IBA). The aims of

AADHAR enabled payment are as follows.

1. To empower a bank customer to use Aadhaar as his/her identity to access his/

her respective Aadhaar enabled bank account and perform basic banking

transactions like balance enquiry, Cash deposit, cash withdrawal, remittances

that are intra bank or interbank in nature, through a Business Correspondent.

2. To sub-serve the goal of Government of India (GoI) and Reserve Bank of India

(RBI) in furthering Financial Inclusion.

3. To sub-serve the goal of RBI in electronification of retail payments.

4. To enable banks to route the Aadhaar initiated interbank transactions through a

central switching and clearing agency.

5. To facilitate disbursements of Government entitlements like MGNREGA,

Social Security pension, Handicapped Old Age Pension etc. of any Central or

State Government bodies, using Aadhaar and authentication thereof as

supported by UIDAI.

6. To facilitate inter-operability across banks in a safe and secured manner.

7. To build the foundation for a full range of Aadhaar enabled Banking services.

In case of post office accounts, money is transferred to the nodal post office along with

the list. In cases of remote areas where banks are far away, the services of the banking

correspondent is availed. As per the above mentioned process, the stakeholders in the

process have been identified and given below.


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The banking network may be explained by the flow chart below.

The Banking network

Beneficiary banks

Banking correspondent/ Service provider / Micro ATMs/ ATMs

NPCI

To facilitate AADHAR based payments

Data centre

Amount segregated for beneficiary banks

PFMS

Central data base to generate CPSMS id

FTO

FTO is generated at the JP


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1.2 Identified Stakeholders

The stakeholders in the above mentioned procedures are as follows.

1. Citizen/ employee

2. Gram Panchayat/ Gram Rozgar Sahayaks

3. Sub-Engineers

4. AAO/ APO

5. Janpad Panchayat

6. Banks

7. Post offices

8. Banking correspondents

9. Government officials at the state and central level

10. Technical staff

1.3 Objectives of the study

The objectives of the proposed study are given under.

1. To mark out the various stages of FTO

2. To find out if guidelines are being adhered to at various stages

3. To identify time lags in each stage

a. How much lag is there?

b. What kind of lags are seen?

i. Procedural

ii. Technical

iii. Others

4. To suggest possible changes and solutions in order to address the delays caused

1.4 Rationale of the study

The data on wage payment suggests that for the year 2016-17, out of Rs. 348 crores

(Rs.34801.28 lakhs) to be disbursed, Rs 210 crores (21,024.84 lakhs) have been

delayed as on June 20, 2016. In huge programmes like MGNREGA, there are so many

levels of functions operating simultaneously that the officials at each level may take

certain conditions to be given and might not report the hassles and bottle necks that

they encounter. A procedural study helps to capture such unreported issues and other


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infrastructural and legal constraints. Once the problems at each level get reported

properly, the government can initiate procedural changes which will increase speed and

effectiveness of the entire process. Secondly, problems need to be understood from a

systemic point of view. Sporadic complaints might not get addressed at the policy level.

A systematic study will give a holistic view of the project and bring in the much needed

focus on procedural improvement.

The entire process of (Direct Benefit Transfer) DBT in MGNREGS

o

Attendance filling in MR IssuingMR

Janpad Panchayat Gram Panchayat

Closure of M R

Gram RozgarSahayak

Evaluation in MB

Sub- engineer

Submission of MR & MB

GRS/ Sub Engineer

Upload data into MIS

Gram RozgarSahayak

Wage list generation

Gram RozgarSahayak

FTO generation and first

sign

AAO

Second Signature

CEO Janpad

Bank processing for

payments


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1.5 Methodology

Multiple methodologies was used to conduct the study. The entire process of wage

payment/ direct benefit transfer was categorized into various stages. The details of the

stages are given under.

1.5.1 Breaking up the process into various stages

Stage 1

Date of data entry( muster fill) - Date of closure of muster roll. This happens at the

level of GRS. Here the GRS fills up all the data regarding the muster except for the

wage rate.

Stage 2

Date of wage list generation - Date of data entry (muster fill). Both the stages can either

be carried out by the GRS. In certain cases, wage list generation is done at the Janpad

by the Computer Operator.

Stage 3

Date of FTO generation - Date of wagelist generation. FTO is generated by AAO.

Wage list is generated either by the GRS or the CO of the Janpad

Stage 4

Date of second sign - Date of FTO generation. The Janpad CEO is the second signatory

and FTO is generated by the AAO

Stage5

Date of second sign - debit date.

Stage 6

Debit date - Credit date

MR- Muster roll MB- Measurement Book MIS- Management

Information System AAO- Assistant Accounts Officer CEO- Chief Executive

Officer


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MGNREGA guidelines stipulates maximum time frame to all the stages mentioned

above. The details of the same are given below.

Payment schedule

Activity

Da

y 1

Da

y 2

Da

y 3

Da

y 4

Da

y 5

Da

y 6

Da

y 7

Da

y 8

Da

y 9

Da

y 1

0

Da

y1

1

Da

y 1

2

Da

y1

3

Da

y 1

4

Da

y1

5

Executing works

Making & checking

measurement

Data entry

Pay order generation

& payment of

cheques

Handing over

cheques to banks

Conveyance of cash

to paying agency at

GP level

Disbursement of

wages by paying

agency

1.5.2. Tracking musters/FTOs from selected districts

In order to identify delays in various stages, random purposive sampling of musters

from 17 districts were done. Delayed musters between April 2016- June 2016 were

identified from 17 districts. Care was taken to ensure that the musters were spread out

across the districts. The time frame of April to June was selected to rule out the case of

insufficient funds in banks. The musters were tracked end to end in Nrega Soft to

understand their course. Mean values of the number of days in each stage was

calculated and their differences assessed.

Based on the same, different set of questionnaires were developed. Primary data on

procedures adopted was collected from the field to understand the gap between

reporting and reality and to identify those aspects which have not been captured in the


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software. A set of pre-designed and pre-tested questionnaires were used for interview

schedules. Stakeholder discussions at different levels was conducted to identify their

perspectives and problems. The technical staffs were also interviewed to understand

the technical snags. The working of the software was monitored from back end to front

end.

1.6 Sample size

17 districts were chosen for study. 10 worst performing districts and 3 relatively better

performing districts were identified initially. Later on, after a formal request from

Evidence For Policy Design to add certain districts from their research proposal on a

related issue, 4 more districts were added. The pilot testing for validation of the

questionnaires was done in 2 blocks of Bhopal. Three- four blocks and one GP from

each block was identified for field study. The list of the districts and their respective

blocks as well as GPs identified for interview schedules are given below.

List of Gram Panchayats chosen

No Name of district Name of block Name of Gram Panchayat Number of Musters

1. Balaghat Balaghat Ameda 13

Katangi Badpani 12

Lalbarra Amoli 13

Warseoni Sikandra 12

2. Rajgarh Biaora Alampura 13

Rajgarh Baga 12

Zirapur Gadiya 13

Sarangpur Chakrod 12

3. Dhar Kukshi Jogardi 13

Dhar Baggad 12

Nalchha Aali 13

Tirla Bori 12

4. Dindori Dindori Aurai 12

Shahpura Amera 13

Karanjiya Baharpur 12

Bajag Angai 13

5. Alirajpur Alirajpur Aali 12

Jobat Umri 13

Kathiawada Guneri 12

Sondwa Genda 13

6. Ratlam Ratlam Amleta 12


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Jaora Borda 13

Alot Devgarh 12

Piploda Mawta 13

7. Jhabua Jhabua Barod 13

Meghnagar Charel 12

Petlawad Kalighati 13

Thandla Amli 12

8. Singrauli Chitrangi Bichhi 17

Deosar Banjari 17

Waidhan Chaura 16

9. Sagar Banda Bamana 13

Malthone Besra 12

Sagar Surkhi 13

Shahgarh Adavan 12

10 Chhatarpur BadaMalehara Simariya 13

Chhatarpur Morwa 12

Nowgaon Bilahri 13

Rajnagar Digouni 12

11. Betul Amla Andhariya 13

Betul Arul 12

Bhimpur Kutanga 13

Chicholi Bori 12

12. Chhindwara Chaurai Badagon 13

Chindwara Jamuniya 12

Mokhed Devgarh 13

Sausar Borgaon 12

13. Mandla Bijadandi Barangda 13

Mandla Boriya 12

Nainpur Bijegaon 13

Narayanganj Kunda 12

14. Harda Harda Bedi 17

Timarni Chiklapat 17

Kirkhiya Dolariya 16

15. Tikamgarh Baldeogarh Ganeshpura 13

Tikamgarh Umari 12

Jatara Digoura 13

Prithvipur Veersagar 12

16. Datia Bhander Godan 17

Datia Bajni 17

Seondha Devpura 16

17. Shahdol Beohari Mair tola 13


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Burhar Chandrapur 12

Gohparu Gurha 13

Jaisinghnaga Pasorh 12

Districts taken for study on MP map

1.7 Limitations of the study

As the sample was purposive, districts were chosen as per their pendency of FTOs. Due

to the same, geographical and demographical variations have not been considered. As

far as the interview schedules are concerned, the respondent could affect its authenticity

by opting for technically correct answers. Problems pertaining to particular places were

tried to capture through open ended questions. Here too, the respondents have lost

focus many a times and digressed to irrelevant issues. Nevertheless, efforts have been

made to create separate profiles for the districts chosen to understand the hassles in the

procedures followed by them by combining the primary as well as secondary data.


23

2. Data Analysis and Interpretation

The data has been categorized into 2 parts. As mentioned in the previous chapter, the

initial phase of the study consisted of end to end analysis of the selected musters of the

sample districts. Random purposive sampling technique was used to identify the stage

where maximum delay happens and to see if there are any repetitive trends across

districts. The data obtained is given in four phases.

2.1 Findings of the pilot study: In the first section, the findings of the pilot have

been enlisted which will provide a direction into the way the study has been conducted.

2.2. District profiles: Every district has been taken singularly to identify the stages of

delay and then an attempt has been made to corroborate the secondary data with the

inputs from the field. Here processes from stage 5 to 6 i.e. from the Janpad level to

beneficiary bank account have been omitted as they are done on a centralized platform.

2.3. Consolidated trends: This section is basically the consolidated data from the

field where the procedures, problems, opinions, suggestions etc have been looked into

from a macro perspective.

2.4 Problems during DBT: A workshop with the banking sector was conducted on

November 26, 2016 at Narmada Bhavan, Bhopal to discuss the existing problems and

to understand the implementation challenges of the bankers. The third section tries to

encapsulate the problems from stage 5-stage 7.

2.1 Findings of the pilot study

As per the research design given in the proposal, a pilot study was conducted in two

phases in two different blocks of Bhopal district. Biaragarh Gram Panchayat in Berasia

Japad and Imliya Gram Panchayat in Phanda Janpad were covered in the pilot study.

The study was conducted through structured questionnaire format and open ended

discussion methods. At the Gram Panchayat level, the Gram RozgarSahayak (GRS)s,

Sub engineer and some random beneficiaries were interviewed. At the Janpad level, the

Janpad Chief Executive Officer (CEO), Accounts Officer (AAO), and Assistant Project


24

Officer (APO) were interviewed. A few findings emerged and the pre-set

questionnaires were modified accordingly before actual roll out. The findings at

respective levels are listed below.

2.1.1 At the level of JP

1. Issues pertaining to infrastructure:

a. Out dated hardware equipments were found to be used, which in turn affected the

working speed of the employee concerned.

b. Back up arrangements in case of power failure was found missing and frequent

power cuts interrupted work.

2. Issues pertaining to technology:

a. The speed of the NregaSoft server was an issue that kept on rising throughout the

discussions. Drops in network connectivity and fluctuating speed are issues that

need to be addressed from the level of development. During discussions, it was

understood that simultaneous log ins for 230000 GRSs has not been factored in the

software, which in turn leads to overloading.

b. There have been cases where FTOs are seen to be rejected by banks in the software,

whereas the beneficiaries receive payment in their respective accounts. So before re-

processing FTOs, it becomes mandatory to confirm with the beneficiary on payment

status to avoid duplication.

c. In cases of errors that are bonafide and which can be rectified in the first instance,

edit option is not available. The concerned officer has to reject the transaction and re-

process the same.

d. Material payments too once accepted cannot be revised or reverted in the software.

e. There are certain projects which come under convergence scheme like Indira Awas

Yojana. They normally come as individual files in a bulk. If a 'group accept' option is

available where in individual cases can be rejected, time can be utilized effectively.

f. Though only aadhar seeded bank accounts are accepted in the scheme, all of them are

not aadhar enabled. Hence accounts in a single muster, if aadhar enabled goes to one

window and the others to another window in the software. AAOs during verification

has to search for different bank accounts in these two windows respectively which


25

become cumbersome as the scale of things get bigger. There has been a request to

maintain both the categories in a single window for convenience.

3. Procedural issues

a. In case of pendency, there is confusion as to whom to contact to identify the reason

for pendency/ delay once the FTO (Fund Transfer Order) has been signed by the

second signatory i.e CEO Janpad.

b. As on date, the Janpad CEO/ AAO is not in a position to know the position of funds

in the bank. There have been instances where FTO has been generated and passed at

Janpad level but rejected by banks in bulk due to insufficient funds. This would lead to

doubling of effort and time.

c. Leave protocol for AAO is not available as on date.

d. Bairagarh GRS submits wage list from the Gram Panchayat and later submit the

verification documents by hand. Due to the sequential clause in generating FTOs, the

AAO has to generate FTO even before the supporting documents arrive.

e. Upon rejection of a wagelist, it goes to the district level from where it is sent to the

GRS. The addition of another level leads to delay in reprocessing.

2.1.2 At the level of G P

Administrative issues

a. The Superintending Engineer is not able to verify all the works in all the Gram

Panchayats in his/her sector due to lack of time. They generally resort to random

verification method.

b. The Sub Engineers are allotted 10 Gram Panchayats on an average which becomes

quite humungous for them.

c. Most of the monitoring is done over phone and email.

Technical issues

The sub-engineer is the only person out of the technical loop and so manual

intervention in this stage also leads to delay.


26

Procedural issues

a. Submission of valuation documents is done manually by the GRS and so he has to

make repeated rounds to the Janpad Panchayat. This reduces his time in the Gram

Panchayat.

b. Normally, a time lag occurs between submission of wage list and supporting

documents when wage list is sent from GP. A protocol to submit wage lists is needed in

this regard.

c. When FTOs are rejected, the GRS is not clear on how to re-initiate proceedings

keeping the beneficiaries in loop. Sporadic efforts due to constant monitoring are

adopted as of now. A standard set of operating procedures need to be devised in this

regard.

2.2 District Profiles

This section shows the district wise scenario and the procedures adopted therein. An

attempt has been made to corroborate the secondary data with the inputs from the field.

It does not include data at the level of banks.

2.2.1 Alirajpur

Alirajpur district of Madhya Pradesh has a population of 728,999 as per the 2011

census. The total number of households is 123,034 of which almost 47% households

have demanded work. The total expenditure on unskilled labour for the current

financial year (till February 2017) is 42. 4 crores (4247.93 lakhs). June 20, 2016 was

the base lined date for the study. On June 20, 2016, of the 13.37 crores (1337.89 lakhs)

to be disbursed through 141238 transactions, Rs 7.68 crores (768.82 lakhs) were

delayed which involved 81863 transactions. As on 28th January 2017, (which is the

final date frozen for current status) the delayed amount is 18.98 crores (1898.84 lakhs)

out of a total of Rs. 31 crores (3179.08 lakhs) leading to a lag of 60 % in payments.

Out of 288 Gram Panchayats, works are in progress in 234 Gram Panchayats and

unskilled labour engagement is to the tune of 5905. The labour engagement status has

been given in the tables below.


27

Table 1: Job card status in Alirajpur

1 2 3 4 6 7

a b c d Cumulative

No. of HH

demanded

employment

(Till the

reporting

month)

Cumulative

No. of HH

provided

employment

(Till the

reporting

month)

No. of HH

working

under

NREGA

during the

reporting

month

S.No Block Cumulative No. of HH issued job

cards (Till the reporting month)

SCs STs Others Total

1 ALIRAJPUR 3054 15666 172 18892 9855 7371 1342

2 BHABRA 31 17040 355 17426 6170 4356 703

3 JOBAT 2995 11816 490 15301 8036 4293 938

4 KATTHIWADA 5800 10069 1614 17483 11895 10197 2334

5 SONDWA 5329 16354 1316 22999 15890 14074 1878

6 UDAIGARH 2641 10524 770 13935 6222 3979 977

Total 19850 81469 4717 106036 58068 44270 8172

Table 2: Person days generated in the district

a b c d e

Cumulative Person days generated (Till the

reporting month) Cumulative

No. of HH

completed

100 days (Till

the reporting

month

No. of Disabled beneficiary

individuals

SCs STs Others Total Women

46227 281228 2734 330189 146876 131 269

276 178451 5024 183751 68013 68 107

29908 117467 5440 152815 63101 48 169

179236 305672 47725 532633 234423 254 170

143575 487324 38751 669650 299540 238 476

38487 123458 8569 170514 73050 50 216

437709 1493600 108243 2039552 885003 789 1407

Source: nrega.nic.in

60 musters were tracked to identify the various stages of delay and it was found that

stage 1 and stage 2 take maximum time of 20 days and 16 days respectively. This is the

same in all the three blocks that were surveyed. The details of the averages derived is

given in Table 3.

Coming to the procedures adopted in the district, except for one GRS, none of them

knew about the circular that says that muster could be issued 4 weeks prior to work.

The works starts on a fixed day and GRSs claim that it ends on a fixed day. There are

discrepancies in their answers regarding the visit of Sub Engineer to GP which might

imply that they are not following any fixed schedule for valuation. 2 of them fill up the

wage list before valuation and two of them do it later. But when queried about the time

of filling up attendance online, 3/4 said that they do it after 1-2 days of valuation. All

http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=ALIRAJPUR&district_name=ALIRAJPUR&state_name=MADHYA%20PRADESH&block_code=1721010&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=BHABRA&district_name=ALIRAJPUR&state_name=MADHYA%20PRADESH&block_code=1721006&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=JOBAT&district_name=ALIRAJPUR&state_name=MADHYA%20PRADESH&block_code=1721008&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=KATTHIWADA&district_name=ALIRAJPUR&state_name=MADHYA%20PRADESH&block_code=1721009&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=SONDWA&district_name=ALIRAJPUR&state_name=MADHYA%20PRADESH&block_code=1721011&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=UDAIGARH&district_name=ALIRAJPUR&state_name=MADHYA%20PRADESH&block_code=1721007&fin_year=2016-2017&page=B&month=


28

of them fill up the wage list from their respective GPs. On sending the wage list to the

JP, procedures are divided with half of the sample opting to send it on the same day and

the other half doing it after 1-2 days. 3/4th of them have highlighted the issue of

technical problems with net connection while sending the wage list. Regarding a

particular muster, a GRS spends around 1 day /week in the JP. Their needs in the JP

range from getting muster issued to depositing valuation documents. 3/4 have faced

problems while logging into the official site of MGNREGS. The monitoring authority

seems to be mixed with one block opting for a three tier route of APO, AAO and CEO

whereas another GP opting for direct reporting to CEO. Communication with JP

happens over phone as well as in person and the frequency of interaction varies from

every day to weekly basis. All of them come to know about rejected FTOs from the JP

and 3/4 get to know the reason for rejection. Beneficiaries are contacted in person as

well as over phone.

Table 3: Average days of delay as per the selected musters.

Alirajpur Date of muster fill-

date of muster

closure (I-H) Stage 1

Date of wage list

generation-date of

muster fill (J-I) Stage 2

Date of FTO generation-

Date of wage list

generation (L-J) Stage 3

Date of second sign-Date of FTO

generation(N-L) Stage 4

Date of 2nd sign-date of

muster closure(N-H)

Mean 19.7 15.55 10.96667 3.116667 49.33333

Median 14 9 3 0 45

Mode 14 1 0 0 35

Standard deviation

9.908565 13.33966 14.55902 8.368811 14.14773

The recent pendency status at various levels as per January 28, 2017 is given in Table

4. As per those figures, stage 2 is showing a higher pendency. In Alirajpur, the problem

of delay seem to be surrounding stage1, stage 2 and to a lesser degree stage 3.

Table no: 4 Recent pendency status

No of muster rolls not filled in due date 123

Wage list not generated within due date 185

Pending at the level of first signatory 18

Pending at the level of 2nd signatory 62



29

Graph 1: Average no of days taken till stage 4 in various blocks

2.2.2 Balaghat

The total population of Balaghat as per 2011 census is 1,701,698. Of the households

numbering 390,930, 48% households have demanded work. Rs. 10343.38 have been

spent in total on unskilled labour in the current financial year (till February 2017). June

20, 2016 was the base lined date for the study. On June 20, 2016, of the Rs. 29.4 crores

(2945.36 lakhs) to be disbursed through 33,525 transactions, Rs. 12.23 crores (1223.08

lakhs) was delayed which involved transactions to the tune of 141495. As on 28th

January 2017, (which is the final date frozen for current status), the delayed amount is

Rs. 3343.84 lakhs out of a total of Rs. 7276.09 lakhs, leading to a lag of 47% in

payments. Out of 690 Gram Panchayats, works are in progress in 588 Gram Panchayats

and unskilled labour engagement is to the tune of 41953. The labour engagement status

of the district has been given in the tables below.

As there were problems with the dates in the musters of Balaghat obtained from

nrega.nic.in. further calculation was not done. But major pendency seems to be at

stages 4, 1 and 2

22.4

12.5

17.6917

20.2518.92

3.87 4

14.46

56.25

0.460

5

10

15

20

25

Sondwa Jobat Alirajpur

Ave

rage

nu

mb

er

of

day

s

Stages blockwise

Alirajpur

Stage 1

Stage 2

Stage 3

Stage 4


30

Table 5: Job card status in Balaghat

1 2 3 4 5 6

a b C d Cumulative

No. of HH

demanded

employment

(Till the

reporting

month)

Cumulative

No. of HH

provided

employment

(Till the

reporting

month)

No. of HH

working

under

NREGA

during the

reporting

month

S.No Block Cumulative No. of HH issued

jobcards (Till the reporting

month)


1 BAIHAR 1065 12476 8637 22178 13529 10912 2902

2 BALAGHAT 1154 4379 17001 22534 14306 12686 3820

3 BIRSA 2235 15745 13141 31121 24680 20594 4728

4 KATANGI 1538 2981 26181 30700 19462 15484 4802

5 KHAIRLANJI 1926 1811 24860 28597 17272 13786 2684

6 KIRNAPUR 1324 1910 26983 30217 19034 16082 4810

7 LALBARRA 794 1805 30711 33310 22430 20101 4170

8 LANJI 1402 4925 28396 34723 20750 16167 5385

9 PARASWADA 804 10843 9269 20916 16528 14182 6944

10 WARASEONI 2428 3060 23603 29091 18421 16871 4068

Total 14670 59935 208782 283387 186412 156865 44313

Table 6: Person days generated in Balaghat

a b c d e

Cumulative Person days generated (Till the reporting

month) Cumulative

No. of HH

completed

100 days

(Till the

reporting

month

No. of Disabled

beneficiary individuals


11355 184649 132578 328582 163818 60 1308

17096 70400 263465 350961 200167 25 575

43476 374304 276090 693870 306657 201 1643

20267 43373 400065 463705 215270 41 1006

22991 33319 312904 369214 190237 4 330

16897 25077 326793 368767 208827 16 721

16662 40257 590306 647225 339584 71 528

14856 71608 301220 387684 251304 13 157

14413 272790 190902 478105 227347 64 639

48495 82735 526866 658096 341600 186 531

226508 1198512 3321189 4746209 2444811 681 7438


Table7: Recent pendency status of FTO






http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=BAIHAR&district_name=BALAGHAT&state_name=MADHYA%20PRADESH&block_code=1738007&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=BALAGHAT&district_name=BALAGHAT&state_name=MADHYA%20PRADESH&block_code=1738005&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=BIRSA&district_name=BALAGHAT&state_name=MADHYA%20PRADESH&block_code=1738009&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=KATANGI&district_name=BALAGHAT&state_name=MADHYA%20PRADESH&block_code=1738001&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=KHAIRLANJI&district_name=BALAGHAT&state_name=MADHYA%20PRADESH&block_code=1738002&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=KIRNAPUR&district_name=BALAGHAT&state_name=MADHYA%20PRADESH&block_code=1738006&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=LALBARRA&district_name=BALAGHAT&state_name=MADHYA%20PRADESH&block_code=1738003&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=LANJI&district_name=BALAGHAT&state_name=MADHYA%20PRADESH&block_code=1738010&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=PARASWADA&district_name=BALAGHAT&state_name=MADHYA%20PRADESH&block_code=1738008&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=WARASEONI&district_name=BALAGHAT&state_name=MADHYA%20PRADESH&block_code=1738004&fin_year=2016-2017&page=B&month=


31

2.2.3 Betul

As per 2011 census, the total population of Betul is 1,575,362. There are 328,484

households in the district. 36% households have demanded work. Rs.5129.87 lakhs

have been spent on unskilled labour in the current financial year (till February 2017).

The base line date for the study as mentioned above is June 20, 2017. As on that date,

Rs.500.26 lakhs involving 63860 transactions were delayed out of Rs.1025.27 lakhs.

On 28th January 2017 (which is the final date frozen for current status), the delayed

amount is Rs.1574.01 lakhs out of a total of Rs.3614.64 lakhs leading to a lag of 44%

in unskilled wage payments. Out of 556 Gram Panchayats, works are in progress in 532

Gram Panchayats and unskilled labour engagement is to the tune of 59878. The labour

engagement status of the district has been given in the tables below.

Table 8: Job card status in Betul

1 2 3 4 5 6

a b c d Cumulative

No. of HH

demanded

employment

(Till the

reporting

month)

Cumulative

No. of HH

provided

employment

(Till the

reporting

month)

No. of HH

working

under

NREGA

during the

reporting

month




1 AMLA 2948 6596 9645 19189 10835 6400 3090

2 ATHNER 1906 8580 6802 17288 8305 6127 2629

3 BETUL 5455 6364 7845 19664 12033 9253 3877

4 BHAINSDEHI 3664 12317 6426 22407 13256 9784 4773

5 BHIMPUR 759 21838 2452 25049 16159 13322 4981

6 CHICHOLI 749 10895 4354 15998 9109 6821 3058

7 GHORA

DONGRI

1870 16329 7389 25588 13627 10092 4775

8 MULTAI 1952 2175 10582 14709 10518 6932 4303

9 PRABHAT

PATTAN

3269 5346 8881 17496 11725 8433 4813

10 SHAHPUR 6904 9007 5280 21191 11572 8118 3783

Total 29476 99447 69656 198579 117139 85282 40082

http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=AMLA&district_name=BETUL&state_name=MADHYA%20PRADESH&block_code=1731008&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=ATHNER&district_name=BETUL&state_name=MADHYA%20PRADESH&block_code=1731003&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=BETUL&district_name=BETUL&state_name=MADHYA%20PRADESH&block_code=1731005&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=BHAINSDEHI&district_name=BETUL&state_name=MADHYA%20PRADESH&block_code=1731002&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=BHIMPUR&district_name=BETUL&state_name=MADHYA%20PRADESH&block_code=1731001&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=CHICHOLI&district_name=BETUL&state_name=MADHYA%20PRADESH&block_code=1731004&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=GHORA+DONGRI&district_name=BETUL&state_name=MADHYA%20PRADESH&block_code=1731006&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=GHORA+DONGRI&district_name=BETUL&state_name=MADHYA%20PRADESH&block_code=1731006&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=MULTAI&district_name=BETUL&state_name=MADHYA%20PRADESH&block_code=1731009&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=PRABHAT+PATTAN&district_name=BETUL&state_name=MADHYA%20PRADESH&block_code=1731010&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=PRABHAT+PATTAN&district_name=BETUL&state_name=MADHYA%20PRADESH&block_code=1731010&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=SHAHPUR&district_name=BETUL&state_name=MADHYA%20PRADESH&block_code=1731007&fin_year=2016-2017&page=B&month=


32

Table 9: Person days generated in Betul

a b c d e


reporting month)

Cumulative

No. of HH

completed

100 days (Till

the reporting

month


individuals


28673 61138 86780 176591 80299 4 205

26297 92304 65990 184591 79382 154 180

76522 110057 125458 312037 156963 19 442

42660 135089 67389 245138 105610 162 605

11112 393393 31026 435531 181538 111 118

10526 176816 34106 221448 105148 32 40

20006 211033 92357 323396 157611 253 88

29621 38878 155021 223520 90137 282 166

47755 98942 118309 265006 123919 43 132

86665 113749 68639 269053 113856 54 407

379837 1431399 845075 2656311 1194463 1114 2383


A total of 60 musters were analyzed end to end. It was found that unlike other districts,

stage 3 takes the maximum time followed by stage 1. The same pattern was observed in

all the blocks of the district.

Table 10: Average no of days in each stage

Betul Date of muster fill-date

of muster closure

(I-H) Stage 1

Date of wagelist

generation-date of


Date of FTO

generation-Date of wagelist

generation (L-J) Stage

3



Date of 2nd sign-date of muster

closure(N-H)

Mean 12.86667 0.416667 26.18333 7.583333 47.05

Median 12 0 4.5 1 37

Mode 5 0 0 1 24

Standard deviation 9.190022 1.124333 29.81155 8.774562 21.77499

Table 11: Recent pendency status







33

In order to understand if there are any differences in the procedures adopted in the

district, the field level staff were interviewed by our FIs. 3/4 of them spoke of issuing

musters 2 days prior to start of work. All of them follow a fixed schedule for starting

work and ending it. As per the GRSs, the SEs have fixed days for valuation. 3/4 of

them said that the SEs visited GPs once a week. 3/4 of them fill up the wage list after

valuation from JP and they submit the valuation document after sending the wage list.

Problems relating to electricity and issues with the server were highlighted as problems

while sending wage list. 3/4 GRSs spend one day a week in JP with regard to a

particular muster. The reasons vary from getting muster issued to submitting valuation

documents. All of them are directly reporting to the APO and to the AAO. The main

mode of communication is over the phone and through whats app. Meetings in person

are also held. Discussion over muster with the JP happens once in a week.

The recent pendency status in Betul is given in Table 11 which is shown above. There

seem to be problems in stage 1, 2 and 4.

Graph 2 : Average no of days taken in each stage in various blocks of Betul

12.96 13.15 12.96

4.62 5.3 4.62

18.5 18.28 18.5

1.69 2 1.69

02468

101214161820

Amla Betul Chicholi

ave

rage

nu

mb

er

of

day

s

Blocks stagewise

Betul

Stage 1

Stage 2

Stage 3

Stage 4


34

2.2.4 Chhatarpur

Chhatarpur has a population of 1,762,375 as per the 2011 census. Of the 355,252

households in the district, 14 % have demanded work. Rs. 4543.58 lakhs have been

spent on unskilled labour in the current financial year (till February 2017). The base

line date for the study as mentioned above is June 20, 2017. As on that date, Rs. 579.31

lakhs, involving 64436 transactions were delayed out of Rs. 743.85 lakhs. On 28th

January 2017, (which is the final date frozen for current status), the delayed amount is

Rs. 2374.35, out of Rs. 3204.97 lakhs leading to a lag of 74% in unskilled wage

payments. Out of 557 Gram Panchayats, works are in progress in 497 Gram

Panchayats and unskilled labour engagement is to the tune of 16658. The labour

engagement status of the district has been given in the tables below.

Table 12: Job card status in Chhatarpur

1 2 3 4 5 6

a b c d Cumulative

No. of HH

demanded

employment

(Till the

reporting

month)

Cumulative

No. of HH

provided

employment

(Till the

reporting

month)

No. of HH

working

under

NREGA

during the

reporting

month




1 BADA

MALEHARA

3455 1717 7924 13096 7328 5865 1636

2 BIJAWAR 4399 2286 9533 16218 4477 3147 552

3 BUXWAHA 1248 2189 9243 12680 4636 3998 743

4 CHHATARPUR 2810 4171 14611 21592 6330 5256 1067

5 GAURIHAR 3986 552 8778 13316 6049 4865 699

6 LAUNDI 2591 245 5673 8509 4792 3705 541

7 NOWGOAN 3474 123 9772 13369 5960 5191 1217

8 RAJNAGAR 2148 2213 11117 15478 10260 8619 1672

Total 24111 13496 76651 114258 49832 40646 8127

Table 13: Person days generated in Chhatarpur

a b c d e

Cumulative Person days generated (Till the reporting

month) Cumulative No. of HH

completed 100 days

(Till the reporting

month


individuals


76051 38292 210485 324828 137373 722 85

33398 11171 83821 128390 50473 139 10

16631 28868 121622 167121 71606 76 49

27852 39695 216575 284122 110621 400 52

79122 6497 189687 275306 116696 497 97

42554 2429 129521 174504 74714 131 209

56899 1025 245280 303204 124707 566 51

56699 48510 368928 474137 187571 889 64

389206 176487 1565919 2131612 873761 3420 6


http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=BADA+MALEHARA&district_name=CHHATARPUR&state_name=MADHYA%20PRADESH&block_code=1708006&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=BADA+MALEHARA&district_name=CHHATARPUR&state_name=MADHYA%20PRADESH&block_code=1708006&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=BIJAWAR&district_name=CHHATARPUR&state_name=MADHYA%20PRADESH&block_code=1708008&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=BUXWAHA&district_name=CHHATARPUR&state_name=MADHYA%20PRADESH&block_code=1708007&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=CHHATARPUR&district_name=CHHATARPUR&state_name=MADHYA%20PRADESH&block_code=1708004&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=GAURIHAR&district_name=CHHATARPUR&state_name=MADHYA%20PRADESH&block_code=1708001&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=LAUNDI&district_name=CHHATARPUR&state_name=MADHYA%20PRADESH&block_code=1708002&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=NOWGOAN&district_name=CHHATARPUR&state_name=MADHYA%20PRADESH&block_code=1708003&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=RAJNAGAR&district_name=CHHATARPUR&state_name=MADHYA%20PRADESH&block_code=1708005&fin_year=2016-2017&page=B&month=


35

Of the 50 musters tracked, due to software error in dating format, the details of the

musters in stage 1 could not be identified. Due to discrepancies in the data received, the

block wise depiction of various stages of the muster could not be shown in graphical

format. The analysis of available data shows that stage 2 and stage 3 take over 20 days

on an average. The mean for the district per se is 41.76 with standard deviation of

18.71.

Table 14: Average delay in various stages

Chhatarpur Date of wage list

generation-date of


Date of FTO

generation-Date of

wage list generation (L-J) Stage

3



Date of 2nd sign-date of muster closure(N-H)

mean 27.6 22.4 0.645833 41.76

median 25 19 0 35.5

mode 19 13 0 35

standard deviation

14.41088 18.85714 1.494523 18.17215

As per the recent status, stages 1 and 2 seem to have problem of pendency.







2.2.5 Chhindwara

The population of Chhindwara district as per 2011 census is 2,090,922. Of the 442,366

households in the district, 32% have demanded work. Rs. 6985.94 lakhs have been

spent on unskilled labour in the current financial year (till February 2017). The base

line date for the study as mentioned above is June 20, 2017. As on that date, out of Rs.

968.49 lakhs involving 114886 transactions, Rs. 402.52 lakhs were delayed which


36

implied a delay on 47270 transactions. On 28th January 2017 (which is the final date

frozen for current status), the delayed amount is Rs. 1588.59 out of Rs. 4817.22 lakhs

leading to a lag of 32 % in unskilled wage payments. Out of 781 Gram Panchayats,

works are in progress in 625 Gram Panchayats and unskilled labour engagement is to

the tune of 54156. The labour engagement status of the district has been given in the

tables below.

Table 16: Job card status in Chhindwara

1 2 3 4 5 6

a b c d Cumulative

No. of HH

demanded

employment

(Till the

reporting

month)

Cumulative

No. of HH

provided

employment

(Till the

reporting

month)

No. of

HH

working

under

NREGA

during

the

reporting

month


jobcards (Till the reporting month)


1 AMARWARA 3061 11396 10965 25422 14327 10869 5174

2 BICHHUA 2810 6699 3029 12538 6157 3884 1285

3 CHAURAI 3087 3264 10742 17093 8573 5865 2119

4 CHHINDWARA 3975 5471 10288 19734 9068 6953 3514

5 HARAI 3824 19710 2616 26150 22394 14698 6498

6 JAMAI 7108 16486 6247 29841 22215 16959 8062

7 MOHKHED 4603 5933 7540 18076 10818 6647 2154

8 PANDHURNA 3989 7503 7539 19031 11652 9756 5441

9 PARASIA 4994 8849 7165 21008 15794 10404 5196

10 SAUSAR 2322 3190 6364 11876 6023 4574 2082

11 TAMIA 2652 17066 3060 22778 16305 12868 7702

Total 42425 105567 75555 223547 143326 103477 49227

Table 17: Person days generated in Chhindwara

a b c d e


reporting month) Cumulative

No. of HH

completed

100 days (Till

the reporting

month


individuals


47321 165225 110675 323221 149283 230 78

21795 48939 22145 92879 43138 28 126

29486 35581 121903 186970 78708 172 60

51784 91328 123095 266207 134485 290 157

88305 412841 56036 557182 241838 724 464

146426 386569 92979 625974 266409 547 340

45754 64589 71025 181368 84354 4 44

http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=AMARWARA&district_name=CHHINDWARA&state_name=MADHYA%20PRADESH&block_code=1736003&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=BICHHUA&district_name=CHHINDWARA&state_name=MADHYA%20PRADESH&block_code=1736010&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=CHAURAI&district_name=CHHINDWARA&state_name=MADHYA%20PRADESH&block_code=1736004&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=CHHINDWARA&district_name=CHHINDWARA&state_name=MADHYA%20PRADESH&block_code=1736008&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=HARAI&district_name=CHHINDWARA&state_name=MADHYA%20PRADESH&block_code=1736002&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=JAMAI&district_name=CHHINDWARA&state_name=MADHYA%20PRADESH&block_code=1736005&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=MOHKHED&district_name=CHHINDWARA&state_name=MADHYA%20PRADESH&block_code=1736007&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=PANDHURNA&district_name=CHHINDWARA&state_name=MADHYA%20PRADESH&block_code=1736011&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=PARASIA&district_name=CHHINDWARA&state_name=MADHYA%20PRADESH&block_code=1736006&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=SAUSAR&district_name=CHHINDWARA&state_name=MADHYA%20PRADESH&block_code=1736009&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=TAMIA&district_name=CHHINDWARA&state_name=MADHYA%20PRADESH&block_code=1736001&fin_year=2016-2017&page=B&month=


37

65184 141233 116604 323021 139282 46 349

82221 154467 94800 331488 173158 263 536

29144 43005 109974 182123 65211 30 56

39635 335755 57697 433087 200075 359 426

647055 1879532 976933 3503520 1575941 2693 2636


Of the 47 musters analyzed, stage 3 showed the largest amount of delay with a mean of

13 days. The average for the whole muster process is 24 days which looks better

compared to the rest of the districts.

Table 18: Average days taken in various stages of FTO

Chindwara Date of muster fill-

date of muster closure (I-H)

Stage 1

Date of wagelist

generation-date of

muster fill (J-I) Stage

2

Date of FTO

generation-Date of wagelist

generation (L-J) Stage

3



Date of 2nd sign-date of muster

closure(N-H)

Mean 8.466666667 1.111111 13.22222 1.2 24

Median 7 0 10 1 18

Mode 4 0 13 1 18

Standard deviation

5.04795188 3.227877 14.63167 0.990867 16.30533

Coming to the picture on field, one of the GRSs was aware of the 4 week clause

circulated by the state council. All of them admitted to having fixed days for starting

the work, muster closure and valuation. 2/4 GPs had Sub Engineers visiting them twice

a week. On a normal course, all of them prepared the wage list 1-2 days after valuation.

3/4 prepared the wage list from the GP itself. Valuation documents are submitted to the

JP after valuation by 3/4 of GRSs. Half of them encountered technical problems while

generating wage list. 3/4 spent an average of 1 day at the JP with regard to a particular

muster and their tasks in the JP included issuance of muster, submission of valuation

documents, to redress technical problems and for wage list generation. Reporting

structures are quite diffused here with AAO, CEO and APO all taking various roles.

Monitoring happens mostly on a weekly basis and telephones and whats app seem to be

the preferred mode of communication. 3/4 do not get to know the reason for rejection

of FTO.


38

The overall pendency status along with the level of pendency as per the reporting

month is given in the table below. As per the data available, stage 1, stage 2 and stage 4

seem to be taking more time than is expected.







Graph 3: Average no of days taken in each stage in various blocks of Chhindwara

2.2.6 Datia

As per 2011 census, Datia has a population of 786,754. Of the 159,781 households 9%

have demanded work. Expenditure to the tune of Rs.650.46 lakhs have been incurred

in Datia as unskilled labour engagement. June 20, 2016 was the base lined date for the

study. On June 20, 2016, of the Rs. 242.25 lakhs to be disbursed through 25095

transactions, Rs. 63.65 lakhs were delayed which involved 6986 transactions. As on

28th January 2017 (which is the final date frozen for current status), the pending

amount is Rs. 218.35 lakhs out of a total of Rs. 743.30 lakhs leading to a lag of 29% in

11.13

16.61

0

9.67

0

2

4

6

8

10

12

14

16

18

Saunsar Mohkhed Chhindwara Churai

vera

ge n

um

be

r o

f d

ays

stages blockwise

Chhindwara

Stage-1

Stage-2

Stage-3

Stage-4


39

payments. Out of 213 Gram Panchayats, works are in progress in 125 Gram Panchayats

and unskilled labour engagement is to the tune of 4936.

Table 20: Job card status in Datia

1 2 3 4 6 7

a b c d Cumulative

No. of HH

demanded

employment

(Till the

reporting

month)

Cumulative

No. of HH

provided

employment

(Till the

reporting

month)

No. of

HH

working

under

NREGA

during

the

reporting

month


jobcards (Till the reporting

month)


1 BHANDER 3040 112 3583 6735 3559 2096 574

2 DATIA 5865 916 8048 14829 7024 5226 1641

3 SEONDHA 2159 29 7002 9190 4094 2585 677

Total 11064 1057 18633 30754 14677 9907 2892

Table 21: Person days generated in Datia

Cumulative Person days generated(Till the reporting month) Cumulative No.

of HH

completed 100

days (Till the

reporting month

No. of

Disabled

beneficiary

individuals


20455 1450 36471 58376 19470 5 34

61875 8153 79515 149543 40953 10 124

17390 160 64825 82375 30228 8 14

99720 9763 180811 290294 90651 23 172


Random purposive sampling led us to only 11 valid musters in Datia. The largest

amount of delay was witnessed in stage 1. All the three blocks of the district showed

the same trend. Total average delay was 25 days of which over 81% delay happened at

the GP itself. The latest figures of pendency at each stage is given in table 23. Stage 1

is most critical in the recent data also.

http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=BHANDER&district_name=DATIA&state_name=MADHYA%20PRADESH&block_code=1704003&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=DATIA&district_name=DATIA&state_name=MADHYA%20PRADESH&block_code=1704002&fin_year=2016-2017&page=B&month=http://164.100.129.4/netnrega/state_html/empstatusnewall.aspx?lflag=eng&block_name=SEONDHA&district_name=DATIA&state_name=MADHYA%20PRADESH&block_code=1704001&fin_year=2016-2017&page=B&month=


40

Table 22: Average days taken in various stages of FTO

Datia Date of muster fill-date

of muster closure

(I-H) Stage 1

Date of wage list

generation-date of


Date of FTO

generation-Date of

wage list generation (L-J) Stage

3



Date of 2nd sign-date of

muster closure(N-H)

Me

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