My Journey to the IIM !!

History and the Enterprise of Knowledge

by Amartya Sen

In an often-quoted remark, Henry Ford, the great captain of industry, said, “History is more or less bunk.” As a general statement about history, this is perhaps not an assessment of compelling delicacy. And yet Henry Ford would have been right to think, if that is what he meant, that history could easily become “bunk” through motivated manipulation.
This is especially so if the writing of history is manoeuvred to suit a slanted agenda in contemporary politics. There are organized attempts in India, at this time, to do just that, with arbitrary augmentation of a narrowly sectarian view of India’s past, along with undermining its magnificently multireligious and heterodox history. Among other distortions, there is also a systematic confounding here of mythology with history. An extraordinary example of this has been the interpretation of the Ramayana, not as a great epic, but as documentary history, which can be invoked to establish property rights over places and sites possessed and owned by others. We see this for example in the confusing story of a recent statement by a Director of the Indian Council of Historical Research (ICHR) announcing exact knowledge of where Rama, the avatar, was born (not surprisingly precisely where the Babri Masjid mosque stood — from which the property rights for building a temple exactly there is meant to follow!), combined with the assertion that the Masjid itself had no religious significance (followed by an embarrassed dissociation of the ICHR itself from these remarkable pronouncements), thus illustrating the confounding of myth and history. The Ramayana, which Rabindranath Tagore had seen as a wonderful legend (“the story of the Ramayana” is to be interpreted, as Tagore put it in a Vision of India’s History, not as “a matter of historical fact” but “in the plane of ideas”) and in fact as a marvellous parable of “reconciliation,” is now made into a legally authentic account that gives some members of one community an alleged entitlement to particular sites and land, amounting to a license to tear down the religious places of other communities. Thomas de Quincey has an interesting essay called “Murder Considered as One of the Fine Arts.” Rewriting of history for bellicose use can also,presumably, be a very fine art.
I note the contemporary confounding of historical studies in India as the starting point of this lecture, even though I shall not be directly concerned with addressing these distortions: there are many superb historians in India to give these misconstructions their definitive due. Instead, I shall be concerned with outlining some methodological issues that relate to the subject of truth and falsehood in general history. I will also try to develop and defend a view of history as “an enterprise of knowledge.”
There will be occasional references to contemporary debates (because I shall illustrate the general points with examples from Indian history), but the overall focus will be on more general themes. There will be occasions, in this context, to take a fresh look at India’s persistent heterodoxy, which includes not only its tendency towards multireligious and multicultural coexistence (a point emphasized in Rabindranath Tagore’s “vision of India’s history”), but also its relevance for the development of science and mathematics in India. For history is not only an enterprise of knowledge in itself, it cannot but have a special involvement with the history of other enterprises of knowledge.
The view of history as an enterprise of knowledge is, of course, very old-fashioned: I am not trying to innovate anything whatsoever. However, this and related epistemic approaches to history have taken some hard knocks over the last few decades. These have come not so much from sectarian bigots (who have barely addressed issues of method), but in the hands of sophisticated methodologists who are not only sceptical of the alleged virtues of modernity and objectivity (often for understandable reasons), but have ended up being deeply suspicious also of the idea of “truth” or “falsehood” in history. They have been keen, in particular, to emphasize the relativity of perspectives and the ubiquity of different points of view.
Perspectives and points of view, I would argue, are indeed important, not just in history, but in every enterprise of knowledge. This is partly because our observations are inescapably “positional.” Distant objects, for example, cannot but look smaller, and yet it is the job of analysis and scrutiny to place the different positional views in their appropriate perspectives to arrive at an integrated and coherent picture. The elementary recognition of the “positionality” of observations and perceptions does not do away with ideas of truth and falsehood, nor with the need to exercise reasoned judgement faced with conflicting evidence and clashing perspectives. I shall not here reiterate the methodological arguments I have presented elsewhere, such as in “Positional Objectivity” in Philosophy and Public Affairs but will discuss their relevance to the interpretation of Indian history.
Indeed, describing the past is like all other reflective judgments, which have to take note of the demands of veracity and the discipline of knowledge. The discipline includes the study of knowledge formation, including the history of science (and the constructive influences that are important in the cultivation of science) and also the history of histories (where differences in perspective call for disciplined scrutiny and are of importance themselves as objects of study). I shall be concerned with each.
I should make one more motivational remark. I address this talk primarily to non-historians, like myself, who take an interest in history. I am aware that no self-respecting historian will peacefully listen to an economist trying to tell them what their discipline is like. But history is not just for historians. It affects the lives of the public at large. We non-historians do not have to establish our entitlement to talk about history.
Rather, a good point of departure is to ask: why is history so often invoked in popular discussions? Also, what can the general public get from history? Why, we must also ask, is history such a battleground?
Let me begin by discussing some distinct motivations that influence the public’s interest in history.
(I) Epistemic interest: The fact that we tend to have, for one reason or another, some interest in knowing more about what happened in the past is such a simple thought that it is somewhat embarrassing to mention this at a learned gathering. But, surely, catering to our curiosity about the past must count among the reasons for trying to learn something about historical events. An ulterior motive is not essential for taking an interest in history (even though ulterior reasons may also exist often enough).
The simplicity of the idea of historical curiosity is, however, to some extent deceptive, because the reasons for our curiosity about the past can be very diverse and sometimes quite complex. The reason can be something very practical (such as learning from a past mistake), or engagingly illuminating (such as knowing about the lives of common people in a certain period in history), or largely recreational (such as investigating the chronology and history of India’s multiplicity of calendars). Also, the historical questions asked need not be straightforward, and may even be highly speculative, such as Rabindranath Tagore’s interesting but bold conjecture that the “mythical version of King Janamejaya’s ruthless serpent sacrifice” may quite possibly stand for an actual historical event involving an “attempted extermination of the entire Naga race” by the dominant powers in ancient India. Whether or not it is easy to satisfy our curiosity (it may not always be possible to settle a debate regarding what actually happened), truth has an obvious enough role in exercises of this kind. In fact, curiosity is a demand for truth on a particular subject.
(2) Practical reason: Historical connections are often invoked in the context of contemporary politics and policies. Indeed, present-day attitudes in politics and society are often strongly influenced by the reading — or misreading — of the history of past events. For example, sectarian tensions build frequently on grievances (spontaneous or cultivated) linked to past deeds (real or imagined) of one group against another. This is well illustrated, for example, by the recent massacres in Rwanda or former Yugoslavia, where history — or imagined history — was often invoked, concerning alleged past records of hostilities between Hutus and Tutsis, or between Serbs and Albanians, respectively. Since these uses of history are aimed primarily at contemporary acts and strategies, the counteracting arguments which too invoke history, though in the opposite direction, also end up being inescapably linked to current affairs. Given the dialectical context, we may be forced to take an interest in historical disputations on battlegrounds that have been chosen by others — not ourselves.
For example, in defending the role of secularism in contemporary India, it is not in any way essential to make any claim whatsoever about how India’s Mughal rulers behaved — whether they were sectarian or assimilative, whether they were oppressive or tolerant. Yet in the political discussions that have accompanied the activist incursions of communal politics in contemporary India (well illustrated, for example, by the rhetoric that accompanied the demolition of the Babri Masjid), a heavily carpentered characterization of the Mughal rule as anti-Hindu was repeatedly invoked. Since this characterization was to a great extent spurious and based on arbitrary selection, to leave that point unaddressed would have, in the context of the on going debate, amounted to a negligence in practical reason, and not just an epistemic abstinence. Even the plausibility or otherwise of the historical argument that some of the juridical roots of Indian secularism can be traced to Mughal jurisprudence (a thesis I have tried to present in my paper, “Reach of Reason: East and West”), even though a matter of pure history, ends up inescapably as having some relevance for contemporary politics (even though that was not a claim I made).
The enterprise of knowledge links in this case with the use of that knowledge. However, this does not, in any way, reduce the relevance of truth in seeking knowledge. The fact that knowledge has its use does not, obviously, make the enterprise of acquiring knowledge in any way redundant. In fact, quite the contrary.
(3) Identity scrutiny: Underlying the political debates, there is often enough a deeper issue related to the way we construct and characterize our own identities, in which too historical knowledge — or alleged knowledge — can play an important part. Our sense of identity is strongly influenced by our understanding of our past. We do not, of course, have a personal past prior to our birth, but our self-perceptions are associated with the shared history of the members of a particular group to which we think we “belong” and with which we “identify.” Our allegiances draw on the evocation of histories of our identity groups.
A scrutiny of this use of history cannot be independent of the philosophical question as to whether our identities are primarily matters of ‘discovery’ (as many ‘communitarian’ thinkers, such as Michael Sandal, claim), or whether they are to a significant extent matters of selection and choice (of course, within given constraints — as indeed all choices inescapably are). Arguments that rely on the assumption of the unique centrality of one’s community-based identity survive by privileging — typically implicitly — that identity over other identities (which may be connected with, say, class, or gender, or language, or political commitments, or cultural influences). In consequence, they restrict the domain of one’s alleged “historical roots” in a truly dramatic way. Thus, the increasing search for a Hindu view of Indian history not only has problems with epistemic veracity (an issue I discussed earlier), but also involves the philosophical problem of categorical oversimplification.
It would, for example, have problems in coming to terms with, say, Rabindranath Tagore’s description of his own background in the Religion of Man as “a confluence of three cultures, Hindu, Mohammedan and British.” No less importantly, it cannot but be in some tension with the sense of pride that an Indian may choose to have, irrespective of his or her own religious background, at the historical achievements of, say, Ashoka or Akbar, or Kalidasa or Kabir, or Aryabhata or Bhaskara. To deny the role of reasoned choice, which can draw on the knowledge of the past, can be a very serious loss indeed. Even those who want to identify with India’s historical achievements and perhaps take some pride in them (a legitimate enough concern) must also examine critically what to take pride in, since it is easy to be misled into a narrow alley through incitements to ignore India’s capacious heterodoxy in favour of a constricted sectarian identity. While discovery and choice compete as the basis of identity, knowledge and choice are essentially complementary to each other. Engagement with issues of identity enriches the enterprise of knowledge and extends its reach.
Let me now move to a more active view of the enterprise of knowledge, and turn to the history of science, which is among the historical subjects of study. As has already been argued, history is not only an enterprise of knowledge, its subject matter includes other enterprises of knowledge. The issue of heterodoxy, to which reference was made earlier, is particularly important here. Indeed, I would argue that there is a general connection between intellectual heterodoxy and the pursuit of science, and that this connection deserves more attention than it tends to get.
Heterodoxy is important for scientific advance because new ideas and discoveries have to emerge initially as heterodox views, at variance with established understanding. One need reflect only on the history of the scientific contributions of say, Galileo or Newton or Darwin, to see the role of heterodoxy in the process. The history of science is integrally linked with heterodoxy.
If this interpretation is correct, then the roots of the flowering of Indian science and mathematics that occurred in and around the Gupta period (beginning particularly with Aryabhata and Varahamihira) can be intellectually associated with persistent expressions of heterodoxies which pre-existed these contributions. In fact, Sanskrit and Pali have a larger literature in defence of atheism, agnosticism and theological scepticism than exists in any other classical language.
The origins of mathematical and scientific developments in the Gupta period are often traced to earlier works in mathematics and science in India, and this is indeed worth investigating, despite the historical mess that has been created recently by the ill-founded championing of the so-called “Vedic mathematics” and “Vedic sciences,” based on very little evidence. What has, I would argue, more claim to attention as a precursor of scientific advances in the Gupta period is the tradition of scepticism that can be found in pre-Gupta India — going back to at least the sixth century B.C. — particularly in matters of religion and epistemic orthodoxy. Indeed, the openness of approach that allowed Indian mathematicians and scientists to learn about the state of these professions in Babylon, Greece and Rome, which are plentifully cited in early Indian astronomy (particularly in the Siddhantas), can also be seen as a part of this inclination towards heterodoxy.
Indeed, the development of Indian sciences has clear methodological connections with the general epistemological doubts expressed by sceptical schools of thought that developed at an earlier period. This included the insistence on relying only on observational evidence (with scepticism of unobserved variables), for example in the Lokayata and Charvaka writings, not to mention Gautama Buddha’s powerfully articulated agnosticism and his persistent questioning of received beliefs. The untimely death of Professor Bimal Matilal has robbed us of the chance of benefiting from his extensive programme of systematic investigation of the history of Indian epistemology, but his already published works, particularly Perceptions bring out the reach of unorthodox early writings on epistemology (by both Buddhist and Hindu writers) in the period that can be linked to the flowering of Indian science and mathematics in the Gupta era.
Similarly, the expression of hereticism and heterodoxy patiently — if somewhat grudgingly — recorded even in the Ramayana (for example, in the form of Javali’s advice to Rama to defy his father’s odd promise) presents methodological reasons to be sceptical of the orthodox position in this field. Indeed, in A Vision of India’s History, Rabindranath Tagore also notes the oddity of the central story of Rama’s pious acceptance of banishment based on “the absurd reason ....about the weak old king [Rama’s father], yielding to a favourite wife, who took advantage of a vague promise which could fit itself to any demand of hers, however preposterous.” Tagore takes it as evidence of “the later degeneracy of mind,” when “some casual words uttered in a moment of infatuation could be deemed more sacred than the truth which is based upon justice and perfect knowledge.”
In fact, Javali’s disputation goes deeply into scientific methodology and the process of acquiring of knowledge:
There is no after-world, nor any religious practice for attaining that. Follow what is within your experience and do not trouble yourself with what lies beyond the province of human experience. (Translation from Makhanlal Sen, Valmiki Ramayana)
As it happens, the insistence that we rely only on observation and experience is indeed a central issue in the departures in astronomy — initiated by Aryabhata and others — from established theological cosmology. The departures presented in his book Aryabhatiya, completed in 421 Saka or 499 A.D., which came to be discussed extensively by mathematicians and astronomers who followed Aryabhata (particularly Varahamihira, Brahmagupta and Bhaskara, and were also discussed in their Arabic translations), included, among others: (1) Aryabhata’s advocacy of the diurnal motion of the earth (rather than the apparent rotation of the sun around it), (2) a corresponding theory of gravity to explain why objects are not thrown out as the earth churns, (3) recognition of the parametric variability of the concept of “up” and “down” depending on where one is located on the globe, and (4) explanation of lunar and solar eclipses in terms respectively of the earth’s shadow on the moon and the moon’s obscuring of the sun. Observational arguments, based on what Javali calls “the province of human experience,” are central to the departures initiated by Aryabhata in these and related fields (more on this presently). In the enterprise of knowledge involving the natural sciences, the intellectual connections between scepticism, heterodoxy and observational insistence, on the one hand, and manifest scientific advances, on the other, require much further exploration and scrutiny than they seem to have received so far.
The observational issue is important also for the particular subject of history of histories, or metahistories (as we may call them). Given the importance of perspectives in historical writings, history of histories can tell us a great deal not only about the subject of those writings, but also about their authors and the traditions and perspectives they reflect. For example, James Mill’s The History of British India, published in 1817, tells us probably as much about imperial Britain as about India. This three-volume history, written by Mill without visiting India (Mill seemed to think that this non-visit made his history more objective), played a major role in introducing the British governors of India (such as the influential Macaulay) to a particular characterization of the country. There is indeed much to learn from Mill’s history — not just about India, but more, in fact, about the perspective from which this history was written. This is an illustration of the general point that the presence of positionality and observational perspective need not weaken the enterprise of knowledge, and may in fact help to extend its reach.
James Mill disputed and rejected practically every claim ever made on behalf of Indian culture and intellectual traditions, but paid particular attention to dismissing Indian scientific works. Mill rebuked early British administrators (particularly, Sir William Jones) for having taken the natives “to be a people of high civilization, while they have in reality made but a few of the earliest steps in the progress to civilization.” Indeed, since colonialism need not be especially biased against any particular colony compared with any other subjugated community, Mill had no great difficulty in coming to the conclusion that the Indian civilization was at par with other inferior ones known to Mill: “very nearly the same with that of the Chinese, the Persians, and the Arabians,” and also the other “subordinate nations, the Japanese, Cochin-chinese, Siamese, Burmans, and even Malays and Tibetans”.
Mill was particularly dismissive of the alleged scientific and mathematical works in India. He denied the generally accepted belief that the decimal system (with place values and the placed use of zero) had emerged in India, and refused to accept that Aryabhata and his followers could have had anything interesting to say on the diurnal motion of the earth and the principles of gravitation. Writing his own history of histories, Mill chastised Sir William Jones for believing in these “stories,” and concluded that it was “extremely natural that Sir William Jones, whose pundits had become acquainted with the ideas of European philosophers respecting the system of the universe, should hear from them that those ideas were contained in their own books.”
It is, in fact, interesting to compare Mill’s History with another history of India, called Ta’rikh al-hind (written in Arabic eight hundred years earlier, in the 11th century) by the Iranian mathematician Alberuni. Alberuni, who was born in Central Asia in 973 A.D., and mastered Sanskrit after coming to India, studied Indian texts on mathematics, natural sciences, literature, philosophy, and religion. Alberuni writes clearly on the invention of the decimal system in India (as do other Arab authors) and also about Aryabhata’s theories on the earth’s rotation, gravitation, and related subjects.
These writings contrast sharply with Mill’s history from a dominant colonial perspective, well established by the beginning of the nineteenth century. The interest in Mill’s dismissive history in imperial Britain (Macaulay, as quoted by John Clive in his introduction to Mill’s History, described Mill’s History of British India to be “on the whole the greatest historical work which has appeared in our language since that of Gibbon”) contrasts with extensive constructive interest in these Indian works among Islamic mathematicians and scientists in Iran and in the Arab world.
In fact, Brahmagupta’s pioneering Sanskrit treatise on astronomy had been first translated into Arabic in the 8th century by Muhammad ibn Ibrahim alFazari, and again by Alberuni three hundred years later in the eleventh century (since Alberuni had certain criticisms of the previous translation). Several Indian works on medicine, science and philosophy had Arabic rendering by the 9th century, and so on. It was through the Arabs that the Indian decimal system and numerals reached Europe, as did Indian writings in mathematics, science and literature, in general.
Indeed, history of histories, particularly about science, can tell us a great deal about the nature of political and social relations between the different countries (such as Iran and Gupta India, on the one hand, Britain and colonial India, on the other). As it happens, Alberuni’s history also provides interesting illumination on scientific discussions within India, and particularly on the constructive role of heterodoxy in this context. Even though Alberuni himself tended to reject Aryabhata’s theory regarding the diurnal motion of the earth, he describes patiently the Indian arguments in defence of the plausibility of Aryabhata’s theory, including the related theory of gravity.
It is, in this context, particularly interesting to examine Alberuni’s discussion of Brahmagupta’s conservative rejection of the exciting departures proposed by Aryabhata and his followers on the subject of lunar and solar eclipses. Alberuni quotes Brahmagupta’s criticism of Aryabhata and his followers, in defence of the orthodox religious theory, involving Rahu and the so-called “head” that is supposed to devour the sun and the moon, and finds it clearly unpersuasive and reactionary. He quotes Brahmagupta’s supplication to religious orthodoxy, in Brahmasiddhanta:
Some people think that the eclipse is not caused by the Head. This, however, is a foolish idea, for it is he in fact who eclipses, and the generality of the inhabitants of the world say that it is the Head that eclipses. The Veda, which is the word of God from the mouth of Brahman, says that the Head eclipses ....On the contrary. Varahamihira, Shrishena, Aryabhata and Vishnuchandra maintain that the eclipse is not caused by the Head, but by the moon and the shadow of the earth, in direct opposition to all (to the generality of men), and from the enmity against the just-mentioned dogma. (Alberuni’s India)
Alberuni, who is quite excited about Aryabhata’s scientific theories of eclipses, then accuses Brahmagupta (a great mathematician himself) for lacking the moral courage of Aryabhata in dissenting from the established orthodoxy. He points out that, in practice, Brahmagupta too follows Aryabhata’s methods in predicting the eclipses, but this does not prevent Brahmagupta from sharply criticising — from an essentially theological perspective — Aryabhata and his followers for being heretical and heterodox. Alberuni puts it thus:
....we shall not argue with him [Brahmagupta], but only whisper into his ear: .... Why do you, after having spoken such [harsh] words [against Aryabhata and his followers], then begin to calculate the diameter of the moon in order to explain the eclipsing of the sun, and the diameter of the shadow of the earth in order to explain its eclipsing the moon? Why do you compute both eclipses in agreement with the theory of those heretics, and not according to the views of those with whom you think it is proper to agree? (Alberuni’s India)
The connection between heterodoxy and scientific advance is indeed close, and big departures in science require methodological independence as well as analytical and constructive skill. Even though Aryabhata, Varahamihira and Brahmagupta were all dead for many hundred years before Alberuni was writing on their controversies and their implications, nevertheless Alberuni’s carefully critical scientific history helps to bring out the main issues involved, and in particular the need for heterodoxy as well as moral courage in pursuit of science.
To conclude, I have tried to illustrate the different ways in which history has relevance for non-historians — indeed the general public.
First, there are diverse grounds for the public’s involvement with history, which include (1) the apparently simple attractions of epistemic interest, (2) the contentious correlates of practical reason, and (3) the scrutiny of identity-based thinking. All of them — directly or indirectly — involve and draw on the enterprise of knowledge.
Second, history is not only itself an enterprise of knowledge, its domain of study incorporates all other enterprises of knowledge, including the history of science. In this context, it is easy to see the role of heterodoxy and methodological independence in scientific advance. The intellectual connections between heterodoxy (especially theological scepticism) and scientific pursuits (especially big scientific departures) deserve more attention in the history of sciences in India.
Third, metahistories — or histories of histories — also bring out the relevance of an appropriate climate for the enterprise of knowledge. The pursuit of knowledge not only requires an open mind (the contrast between Alberuni’s scientific interest and Mill’s colonial predispositions radically differentiate their treatments of the same subject matter), it also requires an inclination to accept heterodoxy and the courage to stand up against orthodoxy (Alberuni’s critique of Brahmagupta’s criticism of Aryabhata relates to this issue). The plurality of perspectives extends the domain of the enterprise of knowledge rather than undermining the possibility of that enterprise.
Since the rewriting of Indian history from the slanted perspective of sectarian orthodoxy not only undermines historical objectivity, but also militates against the spirit of scientific scepticism and intellectual heterodoxy, it is important to emphasize the centrality of scepticism and heterodoxy in the pursuit of scientific knowledge. The incursion of sectarian orthodoxy in Indian history involves two distinct problems, to wit, (1) narrow sectarianism, and (2) unreasoned orthodoxy. The enterprise of knowledge is threatened by both.
 
History and the Enterprise of Knowledge

by Amartya Sen

In an often-quoted remark, Henry Ford, the great captain of industry, said, “History is more or less bunk.” As a general statement about history, this is perhaps not an assessment of compelling delicacy. And yet Henry Ford would have been right to think, if that is what he meant, that history could easily become “bunk” through motivated manipulation.
This is especially so if the writing of history is manoeuvred to suit a slanted agenda in contemporary politics. There are organized attempts in India, at this time, to do just that, with arbitrary augmentation of a narrowly sectarian view of India’s past, along with undermining its magnificently multireligious and heterodox history. Among other distortions, there is also a systematic confounding here of mythology with history. An extraordinary example of this has been the interpretation of the Ramayana, not as a great epic, but as documentary history, which can be invoked to establish property rights over places and sites possessed and owned by others. We see this for example in the confusing story of a recent statement by a Director of the Indian Council of Historical Research (ICHR) announcing exact knowledge of where Rama, the avatar, was born (not surprisingly precisely where the Babri Masjid mosque stood — from which the property rights for building a temple exactly there is meant to follow!), combined with the assertion that the Masjid itself had no religious significance (followed by an embarrassed dissociation of the ICHR itself from these remarkable pronouncements), thus illustrating the confounding of myth and history. The Ramayana, which Rabindranath Tagore had seen as a wonderful legend (“the story of the Ramayana” is to be interpreted, as Tagore put it in a Vision of India’s History, not as “a matter of historical fact” but “in the plane of ideas”) and in fact as a marvellous parable of “reconciliation,” is now made into a legally authentic account that gives some members of one community an alleged entitlement to particular sites and land, amounting to a license to tear down the religious places of other communities. Thomas de Quincey has an interesting essay called “Murder Considered as One of the Fine Arts.” Rewriting of history for bellicose use can also,presumably, be a very fine art.
I note the contemporary confounding of historical studies in India as the starting point of this lecture, even though I shall not be directly concerned with addressing these distortions: there are many superb historians in India to give these misconstructions their definitive due. Instead, I shall be concerned with outlining some methodological issues that relate to the subject of truth and falsehood in general history. I will also try to develop and defend a view of history as “an enterprise of knowledge.”
There will be occasional references to contemporary debates (because I shall illustrate the general points with examples from Indian history), but the overall focus will be on more general themes. There will be occasions, in this context, to take a fresh look at India’s persistent heterodoxy, which includes not only its tendency towards multireligious and multicultural coexistence (a point emphasized in Rabindranath Tagore’s “vision of India’s history”), but also its relevance for the development of science and mathematics in India. For history is not only an enterprise of knowledge in itself, it cannot but have a special involvement with the history of other enterprises of knowledge.
The view of history as an enterprise of knowledge is, of course, very old-fashioned: I am not trying to innovate anything whatsoever. However, this and related epistemic approaches to history have taken some hard knocks over the last few decades. These have come not so much from sectarian bigots (who have barely addressed issues of method), but in the hands of sophisticated methodologists who are not only sceptical of the alleged virtues of modernity and objectivity (often for understandable reasons), but have ended up being deeply suspicious also of the idea of “truth” or “falsehood” in history. They have been keen, in particular, to emphasize the relativity of perspectives and the ubiquity of different points of view.
Perspectives and points of view, I would argue, are indeed important, not just in history, but in every enterprise of knowledge. This is partly because our observations are inescapably “positional.” Distant objects, for example, cannot but look smaller, and yet it is the job of analysis and scrutiny to place the different positional views in their appropriate perspectives to arrive at an integrated and coherent picture. The elementary recognition of the “positionality” of observations and perceptions does not do away with ideas of truth and falsehood, nor with the need to exercise reasoned judgement faced with conflicting evidence and clashing perspectives. I shall not here reiterate the methodological arguments I have presented elsewhere, such as in “Positional Objectivity” in Philosophy and Public Affairs but will discuss their relevance to the interpretation of Indian history.
Indeed, describing the past is like all other reflective judgments, which have to take note of the demands of veracity and the discipline of knowledge. The discipline includes the study of knowledge formation, including the history of science (and the constructive influences that are important in the cultivation of science) and also the history of histories (where differences in perspective call for disciplined scrutiny and are of importance themselves as objects of study). I shall be concerned with each.
I should make one more motivational remark. I address this talk primarily to non-historians, like myself, who take an interest in history. I am aware that no self-respecting historian will peacefully listen to an economist trying to tell them what their discipline is like. But history is not just for historians. It affects the lives of the public at large. We non-historians do not have to establish our entitlement to talk about history.
Rather, a good point of departure is to ask: why is history so often invoked in popular discussions? Also, what can the general public get from history? Why, we must also ask, is history such a battleground?
Let me begin by discussing some distinct motivations that influence the public’s interest in history.
(I) Epistemic interest: The fact that we tend to have, for one reason or another, some interest in knowing more about what happened in the past is such a simple thought that it is somewhat embarrassing to mention this at a learned gathering. But, surely, catering to our curiosity about the past must count among the reasons for trying to learn something about historical events. An ulterior motive is not essential for taking an interest in history (even though ulterior reasons may also exist often enough).
The simplicity of the idea of historical curiosity is, however, to some extent deceptive, because the reasons for our curiosity about the past can be very diverse and sometimes quite complex. The reason can be something very practical (such as learning from a past mistake), or engagingly illuminating (such as knowing about the lives of common people in a certain period in history), or largely recreational (such as investigating the chronology and history of India’s multiplicity of calendars). Also, the historical questions asked need not be straightforward, and may even be highly speculative, such as Rabindranath Tagore’s interesting but bold conjecture that the “mythical version of King Janamejaya’s ruthless serpent sacrifice” may quite possibly stand for an actual historical event involving an “attempted extermination of the entire Naga race” by the dominant powers in ancient India. Whether or not it is easy to satisfy our curiosity (it may not always be possible to settle a debate regarding what actually happened), truth has an obvious enough role in exercises of this kind. In fact, curiosity is a demand for truth on a particular subject.
(2) Practical reason: Historical connections are often invoked in the context of contemporary politics and policies. Indeed, present-day attitudes in politics and society are often strongly influenced by the reading — or misreading — of the history of past events. For example, sectarian tensions build frequently on grievances (spontaneous or cultivated) linked to past deeds (real or imagined) of one group against another. This is well illustrated, for example, by the recent massacres in Rwanda or former Yugoslavia, where history — or imagined history — was often invoked, concerning alleged past records of hostilities between Hutus and Tutsis, or between Serbs and Albanians, respectively. Since these uses of history are aimed primarily at contemporary acts and strategies, the counteracting arguments which too invoke history, though in the opposite direction, also end up being inescapably linked to current affairs. Given the dialectical context, we may be forced to take an interest in historical disputations on battlegrounds that have been chosen by others — not ourselves.
For example, in defending the role of secularism in contemporary India, it is not in any way essential to make any claim whatsoever about how India’s Mughal rulers behaved — whether they were sectarian or assimilative, whether they were oppressive or tolerant. Yet in the political discussions that have accompanied the activist incursions of communal politics in contemporary India (well illustrated, for example, by the rhetoric that accompanied the demolition of the Babri Masjid), a heavily carpentered characterization of the Mughal rule as anti-Hindu was repeatedly invoked. Since this characterization was to a great extent spurious and based on arbitrary selection, to leave that point unaddressed would have, in the context of the on going debate, amounted to a negligence in practical reason, and not just an epistemic abstinence. Even the plausibility or otherwise of the historical argument that some of the juridical roots of Indian secularism can be traced to Mughal jurisprudence (a thesis I have tried to present in my paper, “Reach of Reason: East and West”), even though a matter of pure history, ends up inescapably as having some relevance for contemporary politics (even though that was not a claim I made).
The enterprise of knowledge links in this case with the use of that knowledge. However, this does not, in any way, reduce the relevance of truth in seeking knowledge. The fact that knowledge has its use does not, obviously, make the enterprise of acquiring knowledge in any way redundant. In fact, quite the contrary.
(3) Identity scrutiny: Underlying the political debates, there is often enough a deeper issue related to the way we construct and characterize our own identities, in which too historical knowledge — or alleged knowledge — can play an important part. Our sense of identity is strongly influenced by our understanding of our past. We do not, of course, have a personal past prior to our birth, but our self-perceptions are associated with the shared history of the members of a particular group to which we think we “belong” and with which we “identify.” Our allegiances draw on the evocation of histories of our identity groups.
A scrutiny of this use of history cannot be independent of the philosophical question as to whether our identities are primarily matters of ‘discovery’ (as many ‘communitarian’ thinkers, such as Michael Sandal, claim), or whether they are to a significant extent matters of selection and choice (of course, within given constraints — as indeed all choices inescapably are). Arguments that rely on the assumption of the unique centrality of one’s community-based identity survive by privileging — typically implicitly — that identity over other identities (which may be connected with, say, class, or gender, or language, or political commitments, or cultural influences). In consequence, they restrict the domain of one’s alleged “historical roots” in a truly dramatic way. Thus, the increasing search for a Hindu view of Indian history not only has problems with epistemic veracity (an issue I discussed earlier), but also involves the philosophical problem of categorical oversimplification.
It would, for example, have problems in coming to terms with, say, Rabindranath Tagore’s description of his own background in the Religion of Man as “a confluence of three cultures, Hindu, Mohammedan and British.” No less importantly, it cannot but be in some tension with the sense of pride that an Indian may choose to have, irrespective of his or her own religious background, at the historical achievements of, say, Ashoka or Akbar, or Kalidasa or Kabir, or Aryabhata or Bhaskara. To deny the role of reasoned choice, which can draw on the knowledge of the past, can be a very serious loss indeed. Even those who want to identify with India’s historical achievements and perhaps take some pride in them (a legitimate enough concern) must also examine critically what to take pride in, since it is easy to be misled into a narrow alley through incitements to ignore India’s capacious heterodoxy in favour of a constricted sectarian identity. While discovery and choice compete as the basis of identity, knowledge and choice are essentially complementary to each other. Engagement with issues of identity enriches the enterprise of knowledge and extends its reach.
Let me now move to a more active view of the enterprise of knowledge, and turn to the history of science, which is among the historical subjects of study. As has already been argued, history is not only an enterprise of knowledge, its subject matter includes other enterprises of knowledge. The issue of heterodoxy, to which reference was made earlier, is particularly important here. Indeed, I would argue that there is a general connection between intellectual heterodoxy and the pursuit of science, and that this connection deserves more attention than it tends to get.
Heterodoxy is important for scientific advance because new ideas and discoveries have to emerge initially as heterodox views, at variance with established understanding. One need reflect only on the history of the scientific contributions of say, Galileo or Newton or Darwin, to see the role of heterodoxy in the process. The history of science is integrally linked with heterodoxy.
If this interpretation is correct, then the roots of the flowering of Indian science and mathematics that occurred in and around the Gupta period (beginning particularly with Aryabhata and Varahamihira) can be intellectually associated with persistent expressions of heterodoxies which pre-existed these contributions. In fact, Sanskrit and Pali have a larger literature in defence of atheism, agnosticism and theological scepticism than exists in any other classical language.
The origins of mathematical and scientific developments in the Gupta period are often traced to earlier works in mathematics and science in India, and this is indeed worth investigating, despite the historical mess that has been created recently by the ill-founded championing of the so-called “Vedic mathematics” and “Vedic sciences,” based on very little evidence. What has, I would argue, more claim to attention as a precursor of scientific advances in the Gupta period is the tradition of scepticism that can be found in pre-Gupta India — going back to at least the sixth century B.C. — particularly in matters of religion and epistemic orthodoxy. Indeed, the openness of approach that allowed Indian mathematicians and scientists to learn about the state of these professions in Babylon, Greece and Rome, which are plentifully cited in early Indian astronomy (particularly in the Siddhantas), can also be seen as a part of this inclination towards heterodoxy.
Indeed, the development of Indian sciences has clear methodological connections with the general epistemological doubts expressed by sceptical schools of thought that developed at an earlier period. This included the insistence on relying only on observational evidence (with scepticism of unobserved variables), for example in the Lokayata and Charvaka writings, not to mention Gautama Buddha’s powerfully articulated agnosticism and his persistent questioning of received beliefs. The untimely death of Professor Bimal Matilal has robbed us of the chance of benefiting from his extensive programme of systematic investigation of the history of Indian epistemology, but his already published works, particularly Perceptions bring out the reach of unorthodox early writings on epistemology (by both Buddhist and Hindu writers) in the period that can be linked to the flowering of Indian science and mathematics in the Gupta era.
Similarly, the expression of hereticism and heterodoxy patiently — if somewhat grudgingly — recorded even in the Ramayana (for example, in the form of Javali’s advice to Rama to defy his father’s odd promise) presents methodological reasons to be sceptical of the orthodox position in this field. Indeed, in A Vision of India’s History, Rabindranath Tagore also notes the oddity of the central story of Rama’s pious acceptance of banishment based on “the absurd reason ....about the weak old king [Rama’s father], yielding to a favourite wife, who took advantage of a vague promise which could fit itself to any demand of hers, however preposterous.” Tagore takes it as evidence of “the later degeneracy of mind,” when “some casual words uttered in a moment of infatuation could be deemed more sacred than the truth which is based upon justice and perfect knowledge.”
In fact, Javali’s disputation goes deeply into scientific methodology and the process of acquiring of knowledge:
There is no after-world, nor any religious practice for attaining that. Follow what is within your experience and do not trouble yourself with what lies beyond the province of human experience. (Translation from Makhanlal Sen, Valmiki Ramayana)
As it happens, the insistence that we rely only on observation and experience is indeed a central issue in the departures in astronomy — initiated by Aryabhata and others — from established theological cosmology. The departures presented in his book Aryabhatiya, completed in 421 Saka or 499 A.D., which came to be discussed extensively by mathematicians and astronomers who followed Aryabhata (particularly Varahamihira, Brahmagupta and Bhaskara, and were also discussed in their Arabic translations), included, among others: (1) Aryabhata’s advocacy of the diurnal motion of the earth (rather than the apparent rotation of the sun around it), (2) a corresponding theory of gravity to explain why objects are not thrown out as the earth churns, (3) recognition of the parametric variability of the concept of “up” and “down” depending on where one is located on the globe, and (4) explanation of lunar and solar eclipses in terms respectively of the earth’s shadow on the moon and the moon’s obscuring of the sun. Observational arguments, based on what Javali calls “the province of human experience,” are central to the departures initiated by Aryabhata in these and related fields (more on this presently). In the enterprise of knowledge involving the natural sciences, the intellectual connections between scepticism, heterodoxy and observational insistence, on the one hand, and manifest scientific advances, on the other, require much further exploration and scrutiny than they seem to have received so far.
The observational issue is important also for the particular subject of history of histories, or metahistories (as we may call them). Given the importance of perspectives in historical writings, history of histories can tell us a great deal not only about the subject of those writings, but also about their authors and the traditions and perspectives they reflect. For example, James Mill’s The History of British India, published in 1817, tells us probably as much about imperial Britain as about India. This three-volume history, written by Mill without visiting India (Mill seemed to think that this non-visit made his history more objective), played a major role in introducing the British governors of India (such as the influential Macaulay) to a particular characterization of the country. There is indeed much to learn from Mill’s history — not just about India, but more, in fact, about the perspective from which this history was written. This is an illustration of the general point that the presence of positionality and observational perspective need not weaken the enterprise of knowledge, and may in fact help to extend its reach.
James Mill disputed and rejected practically every claim ever made on behalf of Indian culture and intellectual traditions, but paid particular attention to dismissing Indian scientific works. Mill rebuked early British administrators (particularly, Sir William Jones) for having taken the natives “to be a people of high civilization, while they have in reality made but a few of the earliest steps in the progress to civilization.” Indeed, since colonialism need not be especially biased against any particular colony compared with any other subjugated community, Mill had no great difficulty in coming to the conclusion that the Indian civilization was at par with other inferior ones known to Mill: “very nearly the same with that of the Chinese, the Persians, and the Arabians,” and also the other “subordinate nations, the Japanese, Cochin-chinese, Siamese, Burmans, and even Malays and Tibetans”.
Mill was particularly dismissive of the alleged scientific and mathematical works in India. He denied the generally accepted belief that the decimal system (with place values and the placed use of zero) had emerged in India, and refused to accept that Aryabhata and his followers could have had anything interesting to say on the diurnal motion of the earth and the principles of gravitation. Writing his own history of histories, Mill chastised Sir William Jones for believing in these “stories,” and concluded that it was “extremely natural that Sir William Jones, whose pundits had become acquainted with the ideas of European philosophers respecting the system of the universe, should hear from them that those ideas were contained in their own books.”
It is, in fact, interesting to compare Mill’s History with another history of India, called Ta’rikh al-hind (written in Arabic eight hundred years earlier, in the 11th century) by the Iranian mathematician Alberuni. Alberuni, who was born in Central Asia in 973 A.D., and mastered Sanskrit after coming to India, studied Indian texts on mathematics, natural sciences, literature, philosophy, and religion. Alberuni writes clearly on the invention of the decimal system in India (as do other Arab authors) and also about Aryabhata’s theories on the earth’s rotation, gravitation, and related subjects.
These writings contrast sharply with Mill’s history from a dominant colonial perspective, well established by the beginning of the nineteenth century. The interest in Mill’s dismissive history in imperial Britain (Macaulay, as quoted by John Clive in his introduction to Mill’s History, described Mill’s History of British India to be “on the whole the greatest historical work which has appeared in our language since that of Gibbon”) contrasts with extensive constructive interest in these Indian works among Islamic mathematicians and scientists in Iran and in the Arab world.
In fact, Brahmagupta’s pioneering Sanskrit treatise on astronomy had been first translated into Arabic in the 8th century by Muhammad ibn Ibrahim alFazari, and again by Alberuni three hundred years later in the eleventh century (since Alberuni had certain criticisms of the previous translation). Several Indian works on medicine, science and philosophy had Arabic rendering by the 9th century, and so on. It was through the Arabs that the Indian decimal system and numerals reached Europe, as did Indian writings in mathematics, science and literature, in general.
Indeed, history of histories, particularly about science, can tell us a great deal about the nature of political and social relations between the different countries (such as Iran and Gupta India, on the one hand, Britain and colonial India, on the other). As it happens, Alberuni’s history also provides interesting illumination on scientific discussions within India, and particularly on the constructive role of heterodoxy in this context. Even though Alberuni himself tended to reject Aryabhata’s theory regarding the diurnal motion of the earth, he describes patiently the Indian arguments in defence of the plausibility of Aryabhata’s theory, including the related theory of gravity.
It is, in this context, particularly interesting to examine Alberuni’s discussion of Brahmagupta’s conservative rejection of the exciting departures proposed by Aryabhata and his followers on the subject of lunar and solar eclipses. Alberuni quotes Brahmagupta’s criticism of Aryabhata and his followers, in defence of the orthodox religious theory, involving Rahu and the so-called “head” that is supposed to devour the sun and the moon, and finds it clearly unpersuasive and reactionary. He quotes Brahmagupta’s supplication to religious orthodoxy, in Brahmasiddhanta:
Some people think that the eclipse is not caused by the Head. This, however, is a foolish idea, for it is he in fact who eclipses, and the generality of the inhabitants of the world say that it is the Head that eclipses. The Veda, which is the word of God from the mouth of Brahman, says that the Head eclipses ....On the contrary. Varahamihira, Shrishena, Aryabhata and Vishnuchandra maintain that the eclipse is not caused by the Head, but by the moon and the shadow of the earth, in direct opposition to all (to the generality of men), and from the enmity against the just-mentioned dogma. (Alberuni’s India)
Alberuni, who is quite excited about Aryabhata’s scientific theories of eclipses, then accuses Brahmagupta (a great mathematician himself) for lacking the moral courage of Aryabhata in dissenting from the established orthodoxy. He points out that, in practice, Brahmagupta too follows Aryabhata’s methods in predicting the eclipses, but this does not prevent Brahmagupta from sharply criticising — from an essentially theological perspective — Aryabhata and his followers for being heretical and heterodox. Alberuni puts it thus:
....we shall not argue with him [Brahmagupta], but only whisper into his ear: .... Why do you, after having spoken such [harsh] words [against Aryabhata and his followers], then begin to calculate the diameter of the moon in order to explain the eclipsing of the sun, and the diameter of the shadow of the earth in order to explain its eclipsing the moon? Why do you compute both eclipses in agreement with the theory of those heretics, and not according to the views of those with whom you think it is proper to agree? (Alberuni’s India)
The connection between heterodoxy and scientific advance is indeed close, and big departures in science require methodological independence as well as analytical and constructive skill. Even though Aryabhata, Varahamihira and Brahmagupta were all dead for many hundred years before Alberuni was writing on their controversies and their implications, nevertheless Alberuni’s carefully critical scientific history helps to bring out the main issues involved, and in particular the need for heterodoxy as well as moral courage in pursuit of science.
To conclude, I have tried to illustrate the different ways in which history has relevance for non-historians — indeed the general public.
First, there are diverse grounds for the public’s involvement with history, which include (1) the apparently simple attractions of epistemic interest, (2) the contentious correlates of practical reason, and (3) the scrutiny of identity-based thinking. All of them — directly or indirectly — involve and draw on the enterprise of knowledge.
Second, history is not only itself an enterprise of knowledge, its domain of study incorporates all other enterprises of knowledge, including the history of science. In this context, it is easy to see the role of heterodoxy and methodological independence in scientific advance. The intellectual connections between heterodoxy (especially theological scepticism) and scientific pursuits (especially big scientific departures) deserve more attention in the history of sciences in India.
Third, metahistories — or histories of histories — also bring out the relevance of an appropriate climate for the enterprise of knowledge. The pursuit of knowledge not only requires an open mind (the contrast between Alberuni’s scientific interest and Mill’s colonial predispositions radically differentiate their treatments of the same subject matter), it also requires an inclination to accept heterodoxy and the courage to stand up against orthodoxy (Alberuni’s critique of Brahmagupta’s criticism of Aryabhata relates to this issue). The plurality of perspectives extends the domain of the enterprise of knowledge rather than undermining the possibility of that enterprise.
Since the rewriting of Indian history from the slanted perspective of sectarian orthodoxy not only undermines historical objectivity, but also militates against the spirit of scientific scepticism and intellectual heterodoxy, it is important to emphasize the centrality of scepticism and heterodoxy in the pursuit of scientific knowledge. The incursion of sectarian orthodoxy in Indian history involves two distinct problems, to wit, (1) narrow sectarianism, and (2) unreasoned orthodoxy. The enterprise of knowledge is threatened by both.
 
History and the Enterprise of Knowledge

by Amartya Sen
In an often-quoted remark, Henry Ford, the great captain of industry, said, “History is more or less bunk.” As a general statement about history, this is perhaps not an assessment of compelling delicacy. And yet Henry Ford would have been right to think, if that is what he meant, that history could easily become “bunk” through motivated manipulation.
This is especially so if the writing of history is manoeuvred to suit a slanted agenda in contemporary politics. There are organized attempts in India, at this time, to do just that, with arbitrary augmentation of a narrowly sectarian view of India’s past, along with undermining its magnificently multireligious and heterodox history. Among other distortions, there is also a systematic confounding here of mythology with history. An extraordinary example of this has been the interpretation of the Ramayana, not as a great epic, but as documentary history, which can be invoked to establish property rights over places and sites possessed and owned by others. We see this for example in the confusing story of a recent statement by a Director of the Indian Council of Historical Research (ICHR) announcing exact knowledge of where Rama, the avatar, was born (not surprisingly precisely where the Babri Masjid mosque stood — from which the property rights for building a temple exactly there is meant to follow!), combined with the assertion that the Masjid itself had no religious significance (followed by an embarrassed dissociation of the ICHR itself from these remarkable pronouncements), thus illustrating the confounding of myth and history. The Ramayana, which Rabindranath Tagore had seen as a wonderful legend (“the story of the Ramayana” is to be interpreted, as Tagore put it in a Vision of India’s History, not as “a matter of historical fact” but “in the plane of ideas”) and in fact as a marvellous parable of “reconciliation,” is now made into a legally authentic account that gives some members of one community an alleged entitlement to particular sites and land, amounting to a license to tear down the religious places of other communities. Thomas de Quincey has an interesting essay called “Murder Considered as One of the Fine Arts.” Rewriting of history for bellicose use can also,presumably, be a very fine art.
I note the contemporary confounding of historical studies in India as the starting point of this lecture, even though I shall not be directly concerned with addressing these distortions: there are many superb historians in India to give these misconstructions their definitive due. Instead, I shall be concerned with outlining some methodological issues that relate to the subject of truth and falsehood in general history. I will also try to develop and defend a view of history as “an enterprise of knowledge.”
There will be occasional references to contemporary debates (because I shall illustrate the general points with examples from Indian history), but the overall focus will be on more general themes. There will be occasions, in this context, to take a fresh look at India’s persistent heterodoxy, which includes not only its tendency towards multireligious and multicultural coexistence (a point emphasized in Rabindranath Tagore’s “vision of India’s history”), but also its relevance for the development of science and mathematics in India. For history is not only an enterprise of knowledge in itself, it cannot but have a special involvement with the history of other enterprises of knowledge.
The view of history as an enterprise of knowledge is, of course, very old-fashioned: I am not trying to innovate anything whatsoever. However, this and related epistemic approaches to history have taken some hard knocks over the last few decades. These have come not so much from sectarian bigots (who have barely addressed issues of method), but in the hands of sophisticated methodologists who are not only sceptical of the alleged virtues of modernity and objectivity (often for understandable reasons), but have ended up being deeply suspicious also of the idea of “truth” or “falsehood” in history. They have been keen, in particular, to emphasize the relativity of perspectives and the ubiquity of different points of view.
Perspectives and points of view, I would argue, are indeed important, not just in history, but in every enterprise of knowledge. This is partly because our observations are inescapably “positional.” Distant objects, for example, cannot but look smaller, and yet it is the job of analysis and scrutiny to place the different positional views in their appropriate perspectives to arrive at an integrated and coherent picture. The elementary recognition of the “positionality” of observations and perceptions does not do away with ideas of truth and falsehood, nor with the need to exercise reasoned judgement faced with conflicting evidence and clashing perspectives. I shall not here reiterate the methodological arguments I have presented elsewhere, such as in “Positional Objectivity” in Philosophy and Public Affairs but will discuss their relevance to the interpretation of Indian history.
Indeed, describing the past is like all other reflective judgments, which have to take note of the demands of veracity and the discipline of knowledge. The discipline includes the study of knowledge formation, including the history of science (and the constructive influences that are important in the cultivation of science) and also the history of histories (where differences in perspective call for disciplined scrutiny and are of importance themselves as objects of study). I shall be concerned with each.
I should make one more motivational remark. I address this talk primarily to non-historians, like myself, who take an interest in history. I am aware that no self-respecting historian will peacefully listen to an economist trying to tell them what their discipline is like. But history is not just for historians. It affects the lives of the public at large. We non-historians do not have to establish our entitlement to talk about history.
Rather, a good point of departure is to ask: why is history so often invoked in popular discussions? Also, what can the general public get from history? Why, we must also ask, is history such a battleground?
Let me begin by discussing some distinct motivations that influence the public’s interest in history.
(I) Epistemic interest: The fact that we tend to have, for one reason or another, some interest in knowing more about what happened in the past is such a simple thought that it is somewhat embarrassing to mention this at a learned gathering. But, surely, catering to our curiosity about the past must count among the reasons for trying to learn something about historical events. An ulterior motive is not essential for taking an interest in history (even though ulterior reasons may also exist often enough).
The simplicity of the idea of historical curiosity is, however, to some extent deceptive, because the reasons for our curiosity about the past can be very diverse and sometimes quite complex. The reason can be something very practical (such as learning from a past mistake), or engagingly illuminating (such as knowing about the lives of common people in a certain period in history), or largely recreational (such as investigating the chronology and history of India’s multiplicity of calendars). Also, the historical questions asked need not be straightforward, and may even be highly speculative, such as Rabindranath Tagore’s interesting but bold conjecture that the “mythical version of King Janamejaya’s ruthless serpent sacrifice” may quite possibly stand for an actual historical event involving an “attempted extermination of the entire Naga race” by the dominant powers in ancient India. Whether or not it is easy to satisfy our curiosity (it may not always be possible to settle a debate regarding what actually happened), truth has an obvious enough role in exercises of this kind. In fact, curiosity is a demand for truth on a particular subject.
(2) Practical reason: Historical connections are often invoked in the context of contemporary politics and policies. Indeed, present-day attitudes in politics and society are often strongly influenced by the reading — or misreading — of the history of past events. For example, sectarian tensions build frequently on grievances (spontaneous or cultivated) linked to past deeds (real or imagined) of one group against another. This is well illustrated, for example, by the recent massacres in Rwanda or former Yugoslavia, where history — or imagined history — was often invoked, concerning alleged past records of hostilities between Hutus and Tutsis, or between Serbs and Albanians, respectively. Since these uses of history are aimed primarily at contemporary acts and strategies, the counteracting arguments which too invoke history, though in the opposite direction, also end up being inescapably linked to current affairs. Given the dialectical context, we may be forced to take an interest in historical disputations on battlegrounds that have been chosen by others — not ourselves.
For example, in defending the role of secularism in contemporary India, it is not in any way essential to make any claim whatsoever about how India’s Mughal rulers behaved — whether they were sectarian or assimilative, whether they were oppressive or tolerant. Yet in the political discussions that have accompanied the activist incursions of communal politics in contemporary India (well illustrated, for example, by the rhetoric that accompanied the demolition of the Babri Masjid), a heavily carpentered characterization of the Mughal rule as anti-Hindu was repeatedly invoked. Since this characterization was to a great extent spurious and based on arbitrary selection, to leave that point unaddressed would have, in the context of the on going debate, amounted to a negligence in practical reason, and not just an epistemic abstinence. Even the plausibility or otherwise of the historical argument that some of the juridical roots of Indian secularism can be traced to Mughal jurisprudence (a thesis I have tried to present in my paper, “Reach of Reason: East and West”), even though a matter of pure history, ends up inescapably as having some relevance for contemporary politics (even though that was not a claim I made).
The enterprise of knowledge links in this case with the use of that knowledge. However, this does not, in any way, reduce the relevance of truth in seeking knowledge. The fact that knowledge has its use does not, obviously, make the enterprise of acquiring knowledge in any way redundant. In fact, quite the contrary.
(3) Identity scrutiny: Underlying the political debates, there is often enough a deeper issue related to the way we construct and characterize our own identities, in which too historical knowledge — or alleged knowledge — can play an important part. Our sense of identity is strongly influenced by our understanding of our past. We do not, of course, have a personal past prior to our birth, but our self-perceptions are associated with the shared history of the members of a particular group to which we think we “belong” and with which we “identify.” Our allegiances draw on the evocation of histories of our identity groups.
A scrutiny of this use of history cannot be independent of the philosophical question as to whether our identities are primarily matters of ‘discovery’ (as many ‘communitarian’ thinkers, such as Michael Sandal, claim), or whether they are to a significant extent matters of selection and choice (of course, within given constraints — as indeed all choices inescapably are). Arguments that rely on the assumption of the unique centrality of one’s community-based identity survive by privileging — typically implicitly — that identity over other identities (which may be connected with, say, class, or gender, or language, or political commitments, or cultural influences). In consequence, they restrict the domain of one’s alleged “historical roots” in a truly dramatic way. Thus, the increasing search for a Hindu view of Indian history not only has problems with epistemic veracity (an issue I discussed earlier), but also involves the philosophical problem of categorical oversimplification.
It would, for example, have problems in coming to terms with, say, Rabindranath Tagore’s description of his own background in the Religion of Man as “a confluence of three cultures, Hindu, Mohammedan and British.” No less importantly, it cannot but be in some tension with the sense of pride that an Indian may choose to have, irrespective of his or her own religious background, at the historical achievements of, say, Ashoka or Akbar, or Kalidasa or Kabir, or Aryabhata or Bhaskara. To deny the role of reasoned choice, which can draw on the knowledge of the past, can be a very serious loss indeed. Even those who want to identify with India’s historical achievements and perhaps take some pride in them (a legitimate enough concern) must also examine critically what to take pride in, since it is easy to be misled into a narrow alley through incitements to ignore India’s capacious heterodoxy in favour of a constricted sectarian identity. While discovery and choice compete as the basis of identity, knowledge and choice are essentially complementary to each other. Engagement with issues of identity enriches the enterprise of knowledge and extends its reach.
Let me now move to a more active view of the enterprise of knowledge, and turn to the history of science, which is among the historical subjects of study. As has already been argued, history is not only an enterprise of knowledge, its subject matter includes other enterprises of knowledge. The issue of heterodoxy, to which reference was made earlier, is particularly important here. Indeed, I would argue that there is a general connection between intellectual heterodoxy and the pursuit of science, and that this connection deserves more attention than it tends to get.
Heterodoxy is important for scientific advance because new ideas and discoveries have to emerge initially as heterodox views, at variance with established understanding. One need reflect only on the history of the scientific contributions of say, Galileo or Newton or Darwin, to see the role of heterodoxy in the process. The history of science is integrally linked with heterodoxy.
If this interpretation is correct, then the roots of the flowering of Indian science and mathematics that occurred in and around the Gupta period (beginning particularly with Aryabhata and Varahamihira) can be intellectually associated with persistent expressions of heterodoxies which pre-existed these contributions. In fact, Sanskrit and Pali have a larger literature in defence of atheism, agnosticism and theological scepticism than exists in any other classical language.
The origins of mathematical and scientific developments in the Gupta period are often traced to earlier works in mathematics and science in India, and this is indeed worth investigating, despite the historical mess that has been created recently by the ill-founded championing of the so-called “Vedic mathematics” and “Vedic sciences,” based on very little evidence. What has, I would argue, more claim to attention as a precursor of scientific advances in the Gupta period is the tradition of scepticism that can be found in pre-Gupta India — going back to at least the sixth century B.C. — particularly in matters of religion and epistemic orthodoxy. Indeed, the openness of approach that allowed Indian mathematicians and scientists to learn about the state of these professions in Babylon, Greece and Rome, which are plentifully cited in early Indian astronomy (particularly in the Siddhantas), can also be seen as a part of this inclination towards heterodoxy.
Indeed, the development of Indian sciences has clear methodological connections with the general epistemological doubts expressed by sceptical schools of thought that developed at an earlier period. This included the insistence on relying only on observational evidence (with scepticism of unobserved variables), for example in the Lokayata and Charvaka writings, not to mention Gautama Buddha’s powerfully articulated agnosticism and his persistent questioning of received beliefs. The untimely death of Professor Bimal Matilal has robbed us of the chance of benefiting from his extensive programme of systematic investigation of the history of Indian epistemology, but his already published works, particularly Perceptions bring out the reach of unorthodox early writings on epistemology (by both Buddhist and Hindu writers) in the period that can be linked to the flowering of Indian science and mathematics in the Gupta era.
Similarly, the expression of hereticism and heterodoxy patiently — if somewhat grudgingly — recorded even in the Ramayana (for example, in the form of Javali’s advice to Rama to defy his father’s odd promise) presents methodological reasons to be sceptical of the orthodox position in this field. Indeed, in A Vision of India’s History, Rabindranath Tagore also notes the oddity of the central story of Rama’s pious acceptance of banishment based on “the absurd reason ....about the weak old king [Rama’s father], yielding to a favourite wife, who took advantage of a vague promise which could fit itself to any demand of hers, however preposterous.” Tagore takes it as evidence of “the later degeneracy of mind,” when “some casual words uttered in a moment of infatuation could be deemed more sacred than the truth which is based upon justice and perfect knowledge.”
In fact, Javali’s disputation goes deeply into scientific methodology and the process of acquiring of knowledge:
There is no after-world, nor any religious practice for attaining that. Follow what is within your experience and do not trouble yourself with what lies beyond the province of human experience. (Translation from Makhanlal Sen, Valmiki Ramayana)
As it happens, the insistence that we rely only on observation and experience is indeed a central issue in the departures in astronomy — initiated by Aryabhata and others — from established theological cosmology. The departures presented in his book Aryabhatiya, completed in 421 Saka or 499 A.D., which came to be discussed extensively by mathematicians and astronomers who followed Aryabhata (particularly Varahamihira, Brahmagupta and Bhaskara, and were also discussed in their Arabic translations), included, among others: (1) Aryabhata’s advocacy of the diurnal motion of the earth (rather than the apparent rotation of the sun around it), (2) a corresponding theory of gravity to explain why objects are not thrown out as the earth churns, (3) recognition of the parametric variability of the concept of “up” and “down” depending on where one is located on the globe, and (4) explanation of lunar and solar eclipses in terms respectively of the earth’s shadow on the moon and the moon’s obscuring of the sun. Observational arguments, based on what Javali calls “the province of human experience,” are central to the departures initiated by Aryabhata in these and related fields (more on this presently). In the enterprise of knowledge involving the natural sciences, the intellectual connections between scepticism, heterodoxy and observational insistence, on the one hand, and manifest scientific advances, on the other, require much further exploration and scrutiny than they seem to have received so far.
The observational issue is important also for the particular subject of history of histories, or metahistories (as we may call them). Given the importance of perspectives in historical writings, history of histories can tell us a great deal not only about the subject of those writings, but also about their authors and the traditions and perspectives they reflect. For example, James Mill’s The History of British India, published in 1817, tells us probably as much about imperial Britain as about India. This three-volume history, written by Mill without visiting India (Mill seemed to think that this non-visit made his history more objective), played a major role in introducing the British governors of India (such as the influential Macaulay) to a particular characterization of the country. There is indeed much to learn from Mill’s history — not just about India, but more, in fact, about the perspective from which this history was written. This is an illustration of the general point that the presence of positionality and observational perspective need not weaken the enterprise of knowledge, and may in fact help to extend its reach.
James Mill disputed and rejected practically every claim ever made on behalf of Indian culture and intellectual traditions, but paid particular attention to dismissing Indian scientific works. Mill rebuked early British administrators (particularly, Sir William Jones) for having taken the natives “to be a people of high civilization, while they have in reality made but a few of the earliest steps in the progress to civilization.” Indeed, since colonialism need not be especially biased against any particular colony compared with any other subjugated community, Mill had no great difficulty in coming to the conclusion that the Indian civilization was at par with other inferior ones known to Mill: “very nearly the same with that of the Chinese, the Persians, and the Arabians,” and also the other “subordinate nations, the Japanese, Cochin-chinese, Siamese, Burmans, and even Malays and Tibetans”.
Mill was particularly dismissive of the alleged scientific and mathematical works in India. He denied the generally accepted belief that the decimal system (with place values and the placed use of zero) had emerged in India, and refused to accept that Aryabhata and his followers could have had anything interesting to say on the diurnal motion of the earth and the principles of gravitation. Writing his own history of histories, Mill chastised Sir William Jones for believing in these “stories,” and concluded that it was “extremely natural that Sir William Jones, whose pundits had become acquainted with the ideas of European philosophers respecting the system of the universe, should hear from them that those ideas were contained in their own books.”
It is, in fact, interesting to compare Mill’s History with another history of India, called Ta’rikh al-hind (written in Arabic eight hundred years earlier, in the 11th century) by the Iranian mathematician Alberuni. Alberuni, who was born in Central Asia in 973 A.D., and mastered Sanskrit after coming to India, studied Indian texts on mathematics, natural sciences, literature, philosophy, and religion. Alberuni writes clearly on the invention of the decimal system in India (as do other Arab authors) and also about Aryabhata’s theories on the earth’s rotation, gravitation, and related subjects.
These writings contrast sharply with Mill’s history from a dominant colonial perspective, well established by the beginning of the nineteenth century. The interest in Mill’s dismissive history in imperial Britain (Macaulay, as quoted by John Clive in his introduction to Mill’s History, described Mill’s History of British India to be “on the whole the greatest historical work which has appeared in our language since that of Gibbon”) contrasts with extensive constructive interest in these Indian works among Islamic mathematicians and scientists in Iran and in the Arab world.
In fact, Brahmagupta’s pioneering Sanskrit treatise on astronomy had been first translated into Arabic in the 8th century by Muhammad ibn Ibrahim alFazari, and again by Alberuni three hundred years later in the eleventh century (since Alberuni had certain criticisms of the previous translation). Several Indian works on medicine, science and philosophy had Arabic rendering by the 9th century, and so on. It was through the Arabs that the Indian decimal system and numerals reached Europe, as did Indian writings in mathematics, science and literature, in general.
Indeed, history of histories, particularly about science, can tell us a great deal about the nature of political and social relations between the different countries (such as Iran and Gupta India, on the one hand, Britain and colonial India, on the other). As it happens, Alberuni’s history also provides interesting illumination on scientific discussions within India, and particularly on the constructive role of heterodoxy in this context. Even though Alberuni himself tended to reject Aryabhata’s theory regarding the diurnal motion of the earth, he describes patiently the Indian arguments in defence of the plausibility of Aryabhata’s theory, including the related theory of gravity.
It is, in this context, particularly interesting to examine Alberuni’s discussion of Brahmagupta’s conservative rejection of the exciting departures proposed by Aryabhata and his followers on the subject of lunar and solar eclipses. Alberuni quotes Brahmagupta’s criticism of Aryabhata and his followers, in defence of the orthodox religious theory, involving Rahu and the so-called “head” that is supposed to devour the sun and the moon, and finds it clearly unpersuasive and reactionary. He quotes Brahmagupta’s supplication to religious orthodoxy, in Brahmasiddhanta:
Some people think that the eclipse is not caused by the Head. This, however, is a foolish idea, for it is he in fact who eclipses, and the generality of the inhabitants of the world say that it is the Head that eclipses. The Veda, which is the word of God from the mouth of Brahman, says that the Head eclipses ....On the contrary. Varahamihira, Shrishena, Aryabhata and Vishnuchandra maintain that the eclipse is not caused by the Head, but by the moon and the shadow of the earth, in direct opposition to all (to the generality of men), and from the enmity against the just-mentioned dogma. (Alberuni’s India)
Alberuni, who is quite excited about Aryabhata’s scientific theories of eclipses, then accuses Brahmagupta (a great mathematician himself) for lacking the moral courage of Aryabhata in dissenting from the established orthodoxy. He points out that, in practice, Brahmagupta too follows Aryabhata’s methods in predicting the eclipses, but this does not prevent Brahmagupta from sharply criticising — from an essentially theological perspective — Aryabhata and his followers for being heretical and heterodox. Alberuni puts it thus:
....we shall not argue with him [Brahmagupta], but only whisper into his ear: .... Why do you, after having spoken such [harsh] words [against Aryabhata and his followers], then begin to calculate the diameter of the moon in order to explain the eclipsing of the sun, and the diameter of the shadow of the earth in order to explain its eclipsing the moon? Why do you compute both eclipses in agreement with the theory of those heretics, and not according to the views of those with whom you think it is proper to agree? (Alberuni’s India)
The connection between heterodoxy and scientific advance is indeed close, and big departures in science require methodological independence as well as analytical and constructive skill. Even though Aryabhata, Varahamihira and Brahmagupta were all dead for many hundred years before Alberuni was writing on their controversies and their implications, nevertheless Alberuni’s carefully critical scientific history helps to bring out the main issues involved, and in particular the need for heterodoxy as well as moral courage in pursuit of science.
To conclude, I have tried to illustrate the different ways in which history has relevance for non-historians — indeed the general public.
First, there are diverse grounds for the public’s involvement with history, which include (1) the apparently simple attractions of epistemic interest, (2) the contentious correlates of practical reason, and (3) the scrutiny of identity-based thinking. All of them — directly or indirectly — involve and draw on the enterprise of knowledge.
Second, history is not only itself an enterprise of knowledge, its domain of study incorporates all other enterprises of knowledge, including the history of science. In this context, it is easy to see the role of heterodoxy and methodological independence in scientific advance. The intellectual connections between heterodoxy (especially theological scepticism) and scientific pursuits (especially big scientific departures) deserve more attention in the history of sciences in India.
Third, metahistories — or histories of histories — also bring out the relevance of an appropriate climate for the enterprise of knowledge. The pursuit of knowledge not only requires an open mind (the contrast between Alberuni’s scientific interest and Mill’s colonial predispositions radically differentiate their treatments of the same subject matter), it also requires an inclination to accept heterodoxy and the courage to stand up against orthodoxy (Alberuni’s critique of Brahmagupta’s criticism of Aryabhata relates to this issue). The plurality of perspectives extends the domain of the enterprise of knowledge rather than undermining the possibility of that enterprise.
Since the rewriting of Indian history from the slanted perspective of sectarian orthodoxy not only undermines historical objectivity, but also militates against the spirit of scientific scepticism and intellectual heterodoxy, it is important to emphasize the centrality of scepticism and heterodoxy in the pursuit of scientific knowledge. The incursion of sectarian orthodoxy in Indian history involves two distinct problems, to wit, (1) narrow sectarianism, and (2) unreasoned orthodoxy. The enterprise of knowledge is threatened by both.
 
Agriculture is vital to India
Agriculture is vital to India. It produces 23% of GDP, feeds a billion people, and employs 66% of the workforce. Because of the Green Revolution, India's agricultural productivity has improved to the point that it is both self-sufficient and a net exporter of a variety of food grains. Yet most Indian farmers have remained quite poor. The causes include remnants of scarcity-era regulation and an agricultural system based on small, inefficient landholdings. The agricultural system has traditionally been unfair to primary
producers. Soybeans, for example, are an important oilseed crop that has been exempted from India's Small Scale Industries Act to allow for processing in large, modern facilities. Yet 90% of the soybean crop is sold by farmers with small holdings to traders, who act as
purchasing agents for buyers at a local, government-mandated marketplace, called a mandi. Farmers have only an approximate idea of price trends and have to accept the price offered them at auctions on the day that they bring their grain to the mandi. As a
result, traders are well positioned to exploit both farmers and buyers through practices that sustain system-wide inefficiencies.
ITC is one of India's leading private companies, with annual revenues of US$2 billion. Its International Business Division was created in 1990 as an agricultural trading company; it now generates US$150 million in revenues annually. The company has initiated an e-
Choupal effort that places computers with Internet access in rural farming villages; the e-Choupals serve as both a social gathering place for exchange of information (choupal means gathering place in Hindi) and an e-commerce hub.
What began as an effort to re-engineer the procurement process for soy, tobacco, wheat, shrimp, and other
cropping systems in rural India has also created a highly profitable distribution and product design channel for the company—an e-commerce platform that is also a low-cost fulfillment system focused on the needs of rural India. The e-Choupal system has also catalyzed rural transformation that is helping to alleviate rural isolation,
create more transparency for farmers, and improve their productivity and incomes. This case analyzes the e-Choupal initiative for soy; efforts in other cropping systems (coffee, wheat, and shrimp aquaculture), while different in detail, reflect the same general
approach.
BUSINESS MODEL
A pure trading model does not require much capital investment. The e-Choupal model, in contrast, has required that ITC make significant investments to create and maintain its own IT network in rural India and to identify and train a local farmer to manage each e-Choupal. The computer, typically housed in the farmer's house, is linked to
the Internet via phone lines or, increasingly, by a VSAT connection, and serves an average of 600 farmers in 10 surrounding villages within about a five kilometer radius. Each e-Choupal costs between US$3,000 and US$6,000 to set up and about US$100 per year to maintain. Using the system costs farmers nothing, but the host farmer, called a sanchalak, incurs some operating costs and is obligated by a public oath to serve the entire community; the sanchalak benefits from increased prestige and a commission paid him for all e-Choupal transactions.
The farmers can use the computer to access daily closing prices on local mandis, as well as to track global price trends or find information about new farming techniques—either directly or, because many farmers are illiterate, via the sanchalak. They also use the e-Choupal to order seed, fertilizer, and other products such as consumer goods from ITC or its partners, at prices lower than those available from village traders; the sanchalak typically aggregates the village demand for these products and transmits the order to an ITC representative. At harvest time, ITC offers to buy the crop directly from any farmer at the previous day's closing price; the farmer then transports his crop to an ITC processing center, where the crop is weighed electronically and assessed for quality. The farmer is then paid for the crop and a transport fee. "Bonus points," which are exchangeable for products that ITC sells, are given for crops with quality above the norm. In this way, the e-Choupal system bypasses the government-mandated trading mandis.

Farmers benefit from more accurate weighing, faster processing time, and prompt payment, and from access to a wide range of information, including accurate market price knowledge, and market trends, which help them decide when, where, and at what price to sell. Farmers selling directly to ITC through an e-Choupal typically receive a higher price for their crops than they would receive through the mandi system, on average about 2.5% higher (about US$6 per ton). The total benefit to farmers includes lower prices for inputs and other goods, higher yields, and a sense of empowerment. The e-Choupal system has had a measurable impact on what farmers chose to do: in areas covered by e-Choupals, the percentage of farmers planting soy has increased dramatically, from 50 to 90% in some regions, while the volume of soy marketed through mandis has dropped as much as
half. At the same time, ITC benefits from net procurement costs that are about 2.5% lower (it saves the commission fee and part of the transport costs it would otherwise pay to traders who serve as its buying agents at the mandi) and it has more direct control over the quality of what it buys. The system also provides direct access to the farmer and to information about conditions on the ground, improving planning and building elationships that increase its security of supply. The company reports that it recovers its
equipment costs from an e-Choupal in the first year of operation and that the venture as a whole is profitable.
In mid-2003, e-Choupal services reached more than 1 million farmers in nearly 11,000 villages, and the system is expanding rapidly. ITC gains additional benefits from using this network as a distribution channel for its products (and those of its partners) and a source of innovation for new products. For example, farmers can buy seeds, fertilizer, and some consumer goods at the ITC processing center, when they bring in their grain. Sanchalaks often aggregate village demand for some products and place a single order, lowering ITC's logistic costs. The system is also a channel for soil testing services and for educational efforts to help farmers improve crop quality. ITC is also exploring partnering with banks to offer farmers access to credit, insurance, and other services that are not currently offered or are prohibitively expensive. Moreover, farmers are beginning to suggest—and in some cases, demand—that ITC supply new products or services or expand into additional crops, such as onions and potatoes. Thus farmers are becoming a source of product innovation for ITC.

DEVELOPMENT BENEFIT
The e-Choupal system gives farmers more control over their choices, a higher profit margin on their crops, and access to information that improves their productivity. By providing a more transparent process and empowering local people as key nodes in the system, ITC increases trust and fairness. The increased efficiencies and potential for improving crop quality contribute to making Indian agriculture more competitive. Despite difficulties from undependable phone and electric power infrastructure that sometimes limit hours of use, the system also links farmers and their families to the
world. Some sanchalaks track futures prices on the Chicago Board of Trade as well as local mandi prices, and village children have used the computers for schoolwork, games, and to obtain and print out their academic test results. The result is a significant step toward rural development.
KEY LESSONS
The e-Choupal model demonstrates that a large corporation can play a major role in recognizing markets and increasing the efficiency of an agricultural system, while doing so in ways that benefit farmers and rural communities as well as shareholders. The case also shows the key role of information technology—in this case provided and maintained by a corporation, but used by local farmers—in helping bring about transparency, ncreased access to information, and rural transformation. Critical factors in the apparent success of the venture are ITC's extensive knowledge of agriculture, the effort ITC
has made to retain many aspects of the existing production system,
including maintenance of local partners, the company's commitment to
transparency, and the respect and fairness with which both farmers
and local partners are treated.
 
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Common Interest Groups, Village Institutions and Rural Poor in India- A Review of the District Poverty Initiatives Project




Abstract

The District Poverty Initiatives Project in India (DPIP) was launched in a few Indian states in recent years with a view to ensuring that the most disadvantaged or the poorest have a central role in the design and implementation of sub-projects that are vital to their livelihoods. An elaborate organisational structure at the state, district and village levels is created so that local needs and priorities get due attention. Since the most disadvantaged lack awareness of various options and organisational skills, capacity- building of common interest groups (CIGs) is a key strategic element. Another key element is attitudinal and behavioural transformation of various stakeholders- especially bureaucrats and elected representatives at the village level- through sensitisation programmes. That these innovations may make a difference to the lives of the most disadvantaged cannot be ruled out. However, some risks of so-called community or demand- driven initiatives must not be overlooked. Bureaucratic control and interference at the state and district levels would result in supply side distortions; Panchayats at the village level would cater to the interests of the local power structure while the CIGs are likely to exclude the poorest. Unless the poorest have the collective strength to affirm their interests, they are not likely to benefit much from the DPIPs. A shift of emphasis to rural public works designed in consultation with local communities may empower the poorest to assert their interests better over time than through hastily formed CIGs without adequate representation, and for activities that are weakly linked to their well-being.

Key words: community, poorest, representation, needs, empowerment.

JEL codes: D63, D72, D73, I38






Common Interest Groups, Village Institutions and Rural Poor in India-A Review of the District Poverty Initiatives Project


Raghav Gaiha and Vani Kulkarni

Introduction

Social funds (SFs) have expanded rapidly in recent years. By May 2001, total World Bank investment in SFs was $3.5 billion for more than 98 projects in 58 countries (World Bank, 2002). Although the reviews have been mixed or highly critical, SFs are likely to expand rapidly .

While differing in design and content, SFs have some common features. Characterised as “demand- driven “ and decentralised initiatives, their salient features are: (i) they make grant funds available to communities or municipalities to choose from a menu of projects (e.g. a well, health centre, school, road repair); (ii) project design and construction are decentralised to local actors comprising private firms, NGOs, local governments and community groups; (iii) community groups contract the design or construction firms or equipment suppliers, monitor project execution and/or take responsibility for operations and maintenance; and (iv) a local contribution of 10-15 percent of project costs is often required.

SFs started in Latin America primarily to mitigate the hardships of structural adjustment. They were meant to provide employment through public works and emergency social services in rural areas, and to compensate for lay-offs as a result of downsizing of the public sector in urban areas. By the mid-1990s, several SFs were elevated to more permanent status, in view of their potential as an alternative mode of delivery of public services.

The present paper focuses on a recent World Bank initiative in India- District Poverty Initiatives Projects (DPIPs) – that has all the key elements of a social fund. In reviewing this initiative, we will address the following issues: (i) Are common interest groups likely to benefit the most disadvantaged or the poorest? (ii) Whether the organisational structure created for the DPIPs- especially at the village level- can be expected to act harmoniously in the interest of the poorest? (iii) Whether exclusion of the poorest can be overcome through capacity building measures proposed in the Appraisal Reports? Since we have access only to the Appraisal Reports, we will mainly draw upon some recent field-evidence on various anti-poverty interventions to address these issues and assess the poverty reduction potential of this new initiative. ,


District Poverty Initiatives Projects (DPIPs)

With a view to delineating salient features of DPIPs, we will rely mostly on the Madhya Pradesh District Poverty Initiatives Project without in any way implying that there are no contextual variations. Rather, the focus is on some key features that are common to all the DPIPs.

(a) Objectives, Design, and Allocation

The broad objectives of the DPIPs are: (i) to create income earning opportunities for the rural poor- especially the poorest and most disadvantaged (e.g. women, tribals); (ii) to empower these groups; and (iii) to promote more effective, accountable and inclusive Panchayats (village councils) and other local support and service organisations.

The need for DPIPs arose from the unsatisfactory performance of existing anti-poverty programmes such as Swaranjayanti Gram Swarozgar Yojana (SGSY) and Employment Assurance Scheme (EAS), sponsored by the Government of India. The reasons cited are (i) high administrative costs, (ii) their supply driven nature, and (iii) limited focus on organisations and the skills of the poor.

The design of DPIPs is guided by various considerations, reflecting World Bank’s experience of rural development projects in India and elsewhere. These include:
• empowerment of disadvantaged groups by giving them control over funds;
• ensuring that group investments are demand- driven;
• fostering group formation of the most disadvantaged around common interests;
• ensuring local ownership by requiring cash contributions for group sub-projects and creation of village funds;
• strengthening of local governments at the district and village levels;
• ensuring transparency of the project’s performance;
• facilitating attitudinal and behavioural changes among various stakeholders; and
• strengthening infrastructural support and expansion of income opportunities.
Although the DPIPs have been launched in states with sound fiscal performance, it is emphasised that in addressing these concerns fiscal liabilities will not increase. Nor will financial support provided crowd out or substitute for on-going rural poverty alleviation programmes.

A summary of project allocations for the DPIP in Madhya Pradesh as an illustrative case is given in Table 1.
Table 1

Project Allocations for the DPIP in Madhya Pradesh

Component Sector Costs
(US $ M) Share of Total (%) Bank-Financing
(US $ M) Share of Bank –Financing (%)
(i) Community Investments: (a) sub-projects for infrastructure, livelihood security and skills and organisation; (b) village funds; and (c) innovation funds.1
(ii) Institutional and Human Capacity Building: (a) project administration; (b) human resource development; (c) communications; (d) formation and strengthening of organisations; (e) monitoring and learning systems. Social Investment Funds





Institutional Development 109







25.70 80.9







19.1 93.70







16.40 85.1







14.9
Total Project Costs 134.70 100 110.10 100
Total Financing Required 134.70 100 110.10 100
Source: World Bank (2000a).
1. Innovation funds provide small grants for dissemination projects to be initiated by PFTs, NGOs, private sector, or any other entity.




As may be noted, the bulk of the project expenditure (about 81 percent) will be devoted to community investments and the remaining (about 19 percent) to institutional development.
(b) Organisational Structure and Implementation

To ensure that the benefits accrue mostly to the poor, two mechanisms are proposed in the Madhya Pradesh DPIP: one is geographic targeting and the other is group targeting. The first will involve selection of the poorest blocks and villages/habitations in 14 districts; and the second will require actively promoting collective action, organisation, information and the skills of the poorest first, so that they can negotiate better with formal organisations and demand project and other forms of assistance.

Primary stakeholders are beneficiary organisations (i.e. Common Interest Groups (CIG)), facilitation organisations (Project Facilitation Team (PFT), NGOs), project management and support units (State Project Unit (SPU), and District Project Unit (DPU)), and state government. Human resource development would be the responsibility of District Capacity Building Organisations (either NGOs or government agencies).

With a view to ensuring that the poorest are aware of funding possibilities under the project and the procedures to be followed, there is considerable emphasis on dissemination of information and communication. A communication specialist at the state level would support the district units, and PFTs would carry out communication activities at the village level.

To be eligible for sub-project financing, villagers would organise themselves into Common Interests Groups (CIGs), with the majority of the members being poor. PFTs would help ensure inclusion of the disadvantaged by building their capacity and assisting them in accessing DPIP funds.

At the village level, the CIGs would identify and submit proposals to the Village Development Committee-composed of all elected Panchayat members, and representatives of all CIGs- for appraisal. The VDC would appraise them in consultation with the PFTs, and prioritise them for the given budget. The VDC would submit them to the District Sub-Committee for approval and disbursement. CIGs would be responsible for implementation and operation, and would get assistance from government, NGOs or private sources. All sub-projects would require a community cash contribution of 5 percent, and an additional contribution of 10 percent to be deposited in a Village Fund.

At the state level, the overall budgetary allocation would be the responsibility of the Board of the Society for Poverty Alleviation Initiatives (MPSPAI), chaired by the Chief Minister. Budgetary allocations in the first year would be on the basis of the target population, and in the second on the basis of performance.

Monitoring would ensure that project stakeholders understand better the reasons for a project’s success or failure, as well as learn from the experience in other DPIP states.

(c) Innovations

The DPIP has several innovative features. Creation of a Board with the Chief Minister as the Chairman is designed to ensure that the project has the full backing of the state government, and considerable autonomy. The emphasis on quick and flexible disbursals through streamlining of procedures at the district and village levels (disbursals by the DPU into CIG bank accounts, for example, would cut bureaucratic delays) seeks to remedy bunching of expenditure in the last two or three months of a financial year and large unspent balances (Gaiha et al. 2001). The shift of emphasis from supply driven to demand- driven allocations with considerable attention to ensuring that the poorest (e.g. Scheduled Castes and Tribes) have access to them and are enabled to improve their well-being is significant. In this context, the priority assigned to dissemination of information and communication at different stages of decision-making – in particular, to making the poorest aware of opportunities for enhancing their incomes and for capacity building- is noteworthy. Moreover, the focus on not just economic betterment but also on empowerment of the disadvantaged through their more effective participation in decisions that are crucial to their well-being is a significant departure. Ownership of assets created (e.g. a school, an irrigation canal) through mandatory community contributions would contribute to their sustainability. Finally, without periodic and systematic monitoring and evaluation, the flexibility in the design and implementation of the project would be of limited value. So to avoid distortions considerable emphasis is placed on monitoring and cross-learning from the DPIPs in different states.

Review of DPIPs

Whether the DPIPs live up to their promise would of course depend largely on how they are implemented. As we do not have access to DPIP assessments, we will argue on the basis of field-work done elsewhere and other relevant evidence that some of the assumptions are overoptimistic, that there are a few key missing links and that there is limited awareness of empirical evidence on how various rural institutions function. We do not therefore share the World Bank’s enthusiasm for the DPIPs.

In a forceful critique, Tendler (1999, 2001) questioned the demand -driven nature of social funds. She demonstrated with field-evidence from northeastern Brazil that they were far from participatory and demand- driven and in fact reproduced many features of supply- driven public services but with a different cast of characters, private sector and local. Communities did not choose a school or a road but someone else did. Typically, firms, equipment suppliers or building contractors made the choice for a community. Driven by a profit motive, overstandardized designs that often did not suit local conditions were used. In the few instances that a community chose an activity, the choice was influenced by what it could get.

How real are these risks? We will argue that some of these risks, albeit in different forms, cannot be ruled out in the Indian context. In particular, locally influential groups are likely to assert their interests while the poorest may fail to do so through CIGs. Nor would village institutions- Panchayats and others created specifically to implement the DPIPs- make much of a difference, given their vulnerability to locally influential groups. At higher levels, bureaucratic and other pressures would prevail, and result in further distortions.

(a) Are the Boards Autonomous and Pro-Poor?

Although the composition of decision-making bodies at the state, district and village level varies, with different mixes of bureaucrats, elected representatives, NGOs and CIGs, there is an interplay of vested interests. At the state level, senior bureaucrats often have the upper hand with their easier access to project information, allocation procedures, and donor’s priorities and concerns. Pitted against them are politicians who are more amenable to locally powerful interests, and, occasionally, succeed in manipulating allocations in gross violation of Project objectives through their caste and other networks. At lower levels, a mixed pattern is sometimes observed with elements of collusion and conflict. While line agencies placed under elected bodies seldom cooperate, some lower level functionaries that work closely with elected bodies collude to secure rents. The point therefore is that whatever the organisational form and the composition, there will be vested interests that are not likely to promote the interests of the poor. The evidence cited below illustrates how distortions creep in through an interplay of vested interests at different levels of decision-making.

A similar organisational structure was established for Mewat Area Development Project (MADP), a collaborative project of the Haryana government and IFAD, designed for the uplift of the Meos- an extremely backward community. The Mewat Area Development Board, with the Chief Minister as the Chairman, functioned as an extension of Haryana government in which key decisions were taken by senior civil servants and duly approved by the Chairman. Occasionally, there were political demands (e.g. a political rally in support of the Chief Minister was classified as ‘Development Support Communications’ for funding under the MADP) that were accommodated without any fuss as long as these did not interfere with bureaucratic control over sectoral financial allocations and disbursals. As there were frequent and large shortfalls in expenditure relative to outlays- the expenditure was barely 36 per cent of the outlay in the first five years of this project with a seven year span - the Mewat Development Agency (MDA) had more or less a free hand in allocating funds in a piecemeal and ad hoc manner . It was not so much the local needs and priorities that dictated the allocations but the political clout of local politicians, as illustrated by the abandonment of a wasteland management scheme in Agon and the transfer of funds to a predominantly Jat area.

Briefly, a wasteland management scheme was prepared by the Panchayat of Agon (a village in Mewat). The proposal envisaged the reclamation of 400 acres of land in this village, through levelling, installation of tubewells, field-bunding and plantations. Half the reclaimed area (about 200 acres) was to be leased out to the chronically poor for a period of 3-5 years, and the remaining half was to be auctioned to the non-poor.

Even though this scheme was not included in the original version of the MADP, its participatory orientation (since the proposal was worked out by the Panchayat with the support of the local community) and poverty alleviating potential had considerable appeal. As a result, it was included in the MADP and a special budgetary provision was made. Soon after the levelling work started. However, after levelling of 13 acres, there was no progress. Our field-investigations revealed how an influential Jat MLA (a member of the legislative assembly), through his high-level Jat connections, had manipulated the transfer of funds to a similar project in a predominantly Jat area (while the scheme was meant for the betterment of the backward Meos). What was indeed surprising was that this manipulation was not detected in any of the supervision missions and no objections were raised.



(b) Collusion, Capture and Rents

As noted earlier, the sub-project proposals prepared by CIGs would be submitted to the VDC, consisting of Panchayat members, representatives of CIGs and other individuals selected by the Gram Sabha. In consultation with the PFT, the VDC would appraise these proposals and submit the approved list to the Gram Sabha which in turn would forward it to the ZP DPIS. Although CIGs would be responsible for the implementation and operation of sub-projects, the VDC would have overall responsibility for implementation at the village level. Thus local institutions- especially the VDC and to some extent the Gram Sabha- would have a pivotal role.

Although the Appraisal Reports emphatically reject relying on Panchayati Raj institutions (PRIs), it is difficult to understand how the dominance of Panchayats and through them of locally powerful individuals can be avoided- especially since all Panchayat members are included in the VDC. In earlier collaborative work, based on field-evidence from three districts in Uttar Pradesh, we have drawn attention to collusion between the Sarpanch/Chairperson, Panchayat Secretaries and Gram Sevaks/Village Level Workers in implementing anti-poverty programmes (viz. the Jawahar Rozgar Yojana and Integrated Rural Development Programme) and extraction of rents . Bribes, commissions, and embezzlement of funds were common. Given the quasi-monopoly power of the Panchayats in land allotment, public employment and other services, there were ample opportunities for earning rents. Even under the revamped system, our survey revealed that transparency in decision-making of the Panchayats was lacking. Information relating to outlays, eligibility requirements, selection of activities and muster rolls of participants was tightly controlled by a small group of Panchayat members and a few key functionaries. Local elites benefited in several ways- either as participants or through contracts for supplies or through assets built that favoured them more than the community (e.g contour bunding). Acts of corruption remained undetected, or unpunished, if detected, largely because of the ineffectiveness of the Gram Sabha. The Gram Sabha meetings seldom took place. Even when they did, they were no more than rituals. They were not publicised, their frequency was disputed, the agenda were manipulated, caste and other important factors influenced decisions, and intimidation and violence were frequently employed to force compliance. On the other hand, higher authorities were powerless under the new legislation (i.e. the 73rd Constitutional Amendment) because the Chairpersons of the Panchayats can only be dismissed if there is a no-confidence motion against them.

In any case, going by field-evidence from Maharashtra villages, gathered for a review of the MRCP, the experience of working with parallel organisations such as the VDCs that draw largely upon the Panchayats has been unsatisfactory . This is because the VDCs reproduced many of the shortcomings of the Panchayats- in particular, locally powerful individuals manipulated decisions of the former to serve their own interests better, and the poorest were excluded.

The VDC met once a month. The agenda were not announced. The venue was a Gram Panchayat office or a temple. As there was no quorum, the meeting was held even if there were several absentees. Selection of MRCP beneficiaries was seldom discussed. Either the Sarpanch or the Gram Sevak nominated the beneficiaries. The list of poor households (i.e. those below the poverty line) was in the custody of the Gram Sevak. Although the list was faulty (sometimes 80-90% of the households in a village were included), no questions were asked about its reliability. Even self-nomination of influential persons (a Vice-President of a VDC, for example, nominated himself under the individual loan beneficiary scheme) was seldom challenged. If the poorest got included in the list of potential beneficiaries, it was either through the initiative of NGOs and Sahyoginis (field-workers of NGOs) or through their own determined efforts. The minutes (including the list of beneficiaries) were usually in the custody of the Chairperson or the Secretary of the VDC. That the exclusion of the poorest was to some extent deliberate cannot therefore be ruled out.

To sum up, the functioning of the VDCs was neither participatory nor transparent. Given the weak accountability mechanisms, arbitrary selection of beneficiaries remained uncontested. So the replacement of the Gram Panchayat and Gram Sabha by the VDC and VDA, respectively, hardly made a difference. It is hard to imagine that the outcome under the DPIPs would be any better.

(c) Incentive Compatibility

As noted earlier, in the organisational set- up of the DPIPs, there will be different mixes of officials, elected representatives, NGOs and others. There is a strong presumption in the Appraisal Reports that these stakeholders – officials and elected representatives on the one hand, and elected representatives of the Panchayats at different levels on the other- can be induced to work together towards the betterment of the lives of the rural poor, through sensitisation to some basic values and appropriate performance- based rewards. More generally, some recent work has drawn attention to the synergy between public and civil society organisations, driven presumably not so much by economic rewards as by a desire for civic engagement, a sense of collective identity and social responsibility. More often than not, the public –civic relationships are adversarial, or displacing, or competitive, as illustrated below with Indian evidence.

In the initial phase of reorganisation of Panchayats in Uttar Pradesh (UP), following the 73rd Constitutional Amendment, there was an arbitrary reassignment of responsibilities . All areas except village hygiene and sanitation remained under the overall control and supervision of state and district agencies in blatant violation of the constitutional provisions, due in large measure to an unstable political environment. In a striking contrast, the Karnataka case points to another source of aberrations: relative bargaining strength and skills of the Panchayats at different levels. Given a relatively stable political environment and a well carved out role for the bureaucracy, the battlefield shifted to the Panchayats. As it turned out, most of the major schemes were monopolized either by the Zilla Panchayats or Taluk Panchayats, especially the latter, with a minimal role for the Gram Panchayats. ,

More pertinent in the present context is the “People’s Planning Campaign “ launched by the State Planning Board in Kerala in 1996. Not only were community choices similar to those of line agencies earlier but there was also a general neglect of ecological considerations. This is particularly relevant in the context of the DPIPs’ concern for environmental protection.

Despite greater transparency in decision-making, the network among locally influential persons led to an arbitrary selection of projects. Besides, to the extent that the poor had a role, they preferred projects that catered more to their immediate livelihood needs than to longer –term environmental concerns . A more general point is that sensitivity to environmental concerns cannot be taken for granted even among communities that depend heavily on natural resources. On the other hand, devolution of powers to local bodies was resisted by the bureaucracy as it fragmented their prerogatives. As a result, the support systems at the village, block and district Panchayat levels tended to be weak, and local political bosses and private contractors assumed greater importance. Many villagers became disillusioned and distanced themselves from the experiment .

All these illustrations point to a lack of synergy in the public-civic relationships. A key issue therefore is whether an appropriate incentive structure can be devised for various stakeholders to serve the interests of the poor and disadvantaged better.

(d) Common Interests Groups (CIGs)

As emphasised earlier, CIGs are central to the DPIPs as a mechanism for targeting the rural poor. These groups would also be responsible for implementation of approved sub-projects. As the most disadvantaged groups or the poorest lack information and organisational skills, the DPIPs seek to overcome these constraints through awareness-building and training. The field-evidence that one of us gathered for the the MRCP in Maharashtra, the MADP in Haryana and SFMC in Gujarat and other relevant evidence, however, raise a few serious concerns about CIGs as a targeting mechanism.

Self-help groups (SHGs) were formed as part of the MADP in Mewat for channelling credit to women. Although composed entirely of women from (relatively) affluent households, already a significant shortcoming, SHG formation and their linkage to banks tended to be slow. The main reasons were male resistance, a generally unhelpful attitude of bank staff and limited interaction with NGO field-staff. Nevertheless, benefits to SHG members and to the community at large were not negligible. By contrast, the majority of members of SHGs in Pune District (about 80 percent), under the MRCP, were poor. In most cases, the formation of SHGs and their interface with a bank took about two years or more. They functioned satisfactorily and contributed substantially to both household and community welfare. The evidence, however, also points to the exclusion of the poorest, due to lack of information, social resistance, and biases of implementing agencies. , In fact, the training imparted by the NGOs was much too brief (2-3 days) while that given through more specialised agencies was largely irrelevant. Besides, training modules specifically for the poorest/most disadvantaged groups did not exist.

Under an innovative experiment of SFMC, micro-finance institutions were given the flexibility to channel credit to SHGs in cash or kind. The field-evidence gathered from a sample of villages in Sabarkantha district in Gujarat revealed serious aberrations. This experiment consisted of the following steps. First, SHGs were formed through an NGO. The members were trained in making of agarbattis (incense sticks). After the training, using SFMC loan, the NGO provided raw material to the group leader who was responsible for its distribution among the group members. Although there was no restriction on the sale of the output, usually the NGO bought back the output.

While the members of the SHG interviewed belonged to Scheduled Castes and Tribes (SCs/STs), and Other Backward Classes (OBCs), all except one were (relatively) affluent. The returns, however, were low and, as a result, the membership of the SHG was also low. Exclusion of the poor- especially the poorest- was not unrelated to the discretion given to the field-staff of the NGO. Instead of imparting training to help the poorer segments overcome their diffidence, build their awareness and improve their skills, it was used mainly as a screening device. While some basic skills were imparted, denial of information on how to avail of the benefits of the scheme in question to the less motivated and energetic women kept them out of it. This was presumably meant to ensure a steady flow of output. But, more seriously, irregularities in financial transactions were reported. The price at which the agarbattis were bought was a small fraction of that received by the NGO from a wholesale buyer. There were also complaints from SHG members that payments were often not made for 5-6 months. Finally, at the time of field-visits, there was just one peon-cum-trainer.

That the exclusion of the poorest was widespread was confirmed in other cases as well. This is of course not surprising, given the nature of ‘the common interests’. But there were other problems too that affected their functioning and limited their welfare enhancing impact.

As dairying is an important source of supplementary income for both poor and non-poor households in Mewat, its development was assigned considerable importance in the MADP. Given a large number of small suppliers of milk and colluding private buyers, usually the former were at the mercy of the latter. The entire output of milk net of self-consumption requirements was precommitted to a buyer at a low price. Milk Producers’ Cooperatives as part of a three-tier Federation were promoted under the MADP with a view to ensuring that small suppliers of milk obtained remunerative prices and substantially larger supplementary incomes. As part of this promotional strategy, 177 dairy marketing cooperatives and 36 mini dairy units and milk collection centres were set up; and the milk chilling centre in Nuh was revived.

The cooperatives comprised mostly (relatively) affluent households, with average incomes almost two and a half times the poverty cut-off point. The average landholding was 10.5 acres; each household had cattle (buffaloes, cows, calves); and all but one also owned other assets in the form of agricultural equipment (hand pump, tractor) and consumer durables (TV, radio, bicycle, motor cycle).

Whether Milk Producers’ Cooperatives had the desired effect on the well-being of milk suppliers seems doubtful primarily because the latter continued to depend heavily on private buyers despite the fact that the price offered by them was lower. Private buyers compensated partly for the lower price by offering advance cash payment and/ or credit for buying buffaloes and contingencies. Given the acute need for credit, some members switched back to private buyers when family circumstances changed or it became imperative to borrow. Mismanagement of village cooperatives and lack of transparency in their functioning, and inefficient milk testing procedures contributed to a growing disillusionment among the milk suppliers. As a result, in some cooperatives there was a sharp reduction in membership, a marked reduction in milk collection and the viability of the Federation was threatened.

Another CIG comprised farmers involved in horticulture. The soil and climatic conditions in some parts of Mewat favour horticulture. Several kinds of vegetables and fruits are grown easily. Two strategic options were relevant: expand the area under agriculture by expanding irrigation and/or intensify horticulture in the irrigated areas by introducing better quality inputs and improved pre-harvest and post-harvest management practices. For various reasons, the MDA chose the latter option.

The beneficiaries were highly affluent farmers, with an average income nine times higher than the poverty cut-off point. Besides, the participants reaped substantial benefits in the form of higher yields and revenues. Full potential benefits were, however, not realised due to marketing, credit and input supply constraints. Nor was technical support adequate.

The selection of beneficiaries was largely ad hoc in nature, resulting in the exclusion of marginal and small farmers in violation of eligibility criteria. Rationing worked against the participation of the poor. Being less informed, they were less likely to present themselves at places where they could register with the scheme. They were also excluded because assistance was restricted to those favoured by the Panchayats.

Mewat is mostly semi-arid and subject to frequent droughts. Two-thirds of the area has brackish water, restricting its use for irrigation. As a result of excessive pumping, the water table has fallen steadily. Since the Aravali Hills are devoid of vegetative cover, the heavy run-off during the monsoon season causes acute soil erosion. Excessive grazing of animals has aggravated the drought- proneness of the region. Under these conditions, considerable importance was attached to soil and water conservation under the MADP. The objective of this component was to increase rainfed cultivation over 16000 ha. with better watershed management practices . In principle, the strategy was to use state-of-art techniques with active community involvement. It was proposed to form watershed associations or committees around the work-sites.

Most of the beneficiaries of watershed development were quite well-off. While the benefits in the form of prevention of heavy run-off were non-negligible, changes in cropping patterns and increases in yields were well below the potential. Consequently, employment and wages also rose slightly. An important reason was deficient rainfall during the three years preceding the survey. The design and execution of watershed projects were also unsatisfactory in some respects. Specifically, in the absence of a master plan for watershed development, it is doubtful whether the sites selected reflected regional priorities; there were some design defects and the quality of compaction in some of the structures was unsatisfactory; and the communities’ involvement in the design and execution of these projects was minimal. As a consequence, the communities did not ‘own’ these assets, raising serious concerns about their maintenance and durability. A related concern is the prospect of distributional conflicts, arising from a general neglect of all groups other than those with farms within a small radius of a watershed structure. Since it is arguable that equity and sustainability of watershed development are closely intertwined, this is a rather glaring omission.

Reluctance to contribute towards the maintenance of watershed structures had little to do with lack of ability to contribute since most of the beneficiaries were well above the poverty threshold. Rather, it reflected an attitude of dependence on an outside agency (i.e. the MDA) and absence of a sense of ownership. Besides, another major contributory factor was the cynical attitude of Soil and Water Conservation staff towards the community and local institutions- especially the Panchayats. Inactivity of and factionalism within the Panchayats tended to reinforce this cynicism.

While the concern for the CIG’s involvement in a sub-project and its ‘ownership’ of it in the DPIPs through a contribution of 5 per cent towards the cost and another 10 per cent towards a Village Fund is laudable, attention must be drawn to two serious difficulties. One is that the financial burden would tend to exclude the poorest . The second difficulty is that, if the sub-project involves a local public good (e.g. repair of a road or its extension), some potential beneficiaries may ‘free-ride’.

These cases point to three major concerns in the context of the DPIPs, relating to targeting, nature of common interests and markets. As noted earlier, targeting the poorest is sought to be achieved by first identifying the poorest blocks and villages, followed by promotion of collective action, organisation and skills among the poorest groups in such areas. While identification of the poorest blocks and villages can be done with some broad socio-economic indicators, organisation of the poorest groups and enabling them to assert their collective/group interests is a challenging task. Not only do they often lack awareness of potential benefits of group activities but are often constrained by the harsh trade-offs between a mere subsistence and uncertain future prospects of a better livelihood. Dedicated field-staff/facilitators/NGOs may help overcome these constraints but often the incentive structure for them is perverse . Besides, as confirmed by the field-evidence, even in a most backward region such as Mewat, CIGs comprised mostly (relatively) affluent members. This is not surprising, given the nature of the “common interests”. Since these interests involve use of various assets (e.g. land, cows, buffalos) for livelihood, groups consisting of members owning (or with access to) them are easier to organise (e.g. water user groups, horticulturists, milk producers’ cooperatives). Even among SHGs, vulnerability to covariate risks and repeated shocks may result in the exclusion of those who are near subsistence. Finally, organisation of CIGs need not imply enhanced well-being in a context of weak infrastructural support, and various market imperfections (e.g. interlinked credit and output markets). The Appraisal Reports gloss over these concerns.
(e) Heterogeneity, Inequality and Collective Action

There is a vast but disparate theoretical literature on how social heterogeneity and economic inequality influence collective action. Much of it is, however, based on highly stylised descriptions of provision of public goods . Our comments therefore rely on a few rich and insightful case studies.

Some evidence on community driven water projects in Nepal, India and Mexico suggests that heterogeneity has a negative effect on cooperation and commons management, as it weakens the cohesive effect of social norms and comes in the way of sanctions to enforce collective agreements (Bardhan and Dayton-Johnson, 2001). Inequality also has a negative effect on maintenance of irrigation projects in south India (Bardhan, 2000). Some other evidence on forest conservation in India is, however, mixed (Somanathan et al., 2002). While communities with more equal landownership conserved pine forests somewhat better, this was not the case with broadleaved forests that matter more in terms of firewood and fodder. Nor did caste heterogeneity have a significant effect on conservation.

Of particular significance are the case studies of grazing and irrigation in Kurnool district in Andhra Pradesh (Wade, 1987). Contrary to assertions in the theoretical literature, these case studies demonstrate that, under certain conditions, rational, self-interested individuals often combine, without any coercion or other form of external intervention, to achieve their common or group interests. In the sample analysed, some villages had a public realm, consisting of four main institutions: a village council, a village standing fund, village guards employed by the council to protect crops, and “common irrigators”, also supplied by the council to distribute canal water to the rice fields. The council was accountable to an annual meeting of all village residents. These institutions played a key role in sustaining collective action, as discussed below.

Corporate institutions were mainly a feature of downstream villages. These villages also had a higher proportion of black soils, which are more water- retentive than red soils. As a result, there was a wider range of rain-fed crops, higher yields and, hence, a more abundant and varied supply of stubble. Given the scarcity of canal water in downstream villages, unrestrained access to canal water would have resulted in frequent conflicts and disruption of crop production cycle. Similarly, unrestrained access to stubble would have resulted in frequent conflicts and standing crop losses. Corporate institutions with an effective enforcement machinery evolved to regulate access to water and grazing. An issue here is the role of the local elite (in this case, large landowners). In this sample, elite support was guaranteed by the fact that the plots of large landowners were widely scattered. Since any individual arrangement would have been unworkable under these conditions, it was in everybody’s interest to cooperate. The local elite thus actively participated in the framing of the rules and their enforcement. To generalise from this example- as in fact various researchers including Wade himself have done- that it “ may be necessary to organize around existing structures of authority with a major role for village elites” ( Mansuri and Rao, 2003, p. 31) is, however, somewhat misleading. In the absence of ecological constraints, it is far from obvious that the elite would have cooperated in the manner it did.

(f) Strategic Options

In the context of the DPIPs, the recognition that the poorest groups may be harder to mobilize is not matched by a deep understanding of the underlying factors. Acute and persistent poverty involves social exclusion, lack of income augmenting skills, and organizational ability. That PFTs and VDCs would be sensitive to their concerns and committed to building their capacities for designing and implementing sub-projects overlooks not only that this process of capacity-building is likely to be slow and gradual but also the difficulties of designing appropriate incentives for these agencies. The presumption that sensitization of these agencies, their training, and periodic monitoring of their performance would ensure desired outcomes is overoptimistic, if not largely mistaken. An alternative is to first strengthen the fall back options for the poor . In this strategy, rural public works (rpw) have an important role. If their full potential has not been realized so far, it is a consequence of deficiencies in their design and implementation. Since a detailed discussion of these deficiencies is given elsewhere, we shall sketch a few suggestions here . One is to merge various rpw under one scheme and assign responsibility to one agency, say, village Panchayats, with a strict enforcement of guidelines (such as regular maintenance of muster rolls, an up-to-date display of lists of participants, and outlays). With the right to information gaining greater acceptance, access to official documents and information would be easier provided of course there are demands from the community. Although there are specific criteria for allocating funds under various schemes (e.g. incidence of poverty), there is a case for including a performance linked component along the lines discussed earlier. But this is easier said than done, given the informational and other constraints. An option is to ensure that these budgets are discussed and approved in a Gram Sabha meeting and the minutes are recorded . If the agenda are announced and publicized in advance, and there is greater awareness of the scheme in question, attendance is likely to improve. In designing rural public works, a participatory selection of projects (e.g. building of roads, canals, schools) would allow a closer linkage to local needs. On the other hand, self-selection of the poor would be greater if the rpw wage is lower relative to the agricultural wage, a mix of piece and time rates is used, and wages in kind are discontinued. Moderate but sustained economic betterment of the poor would make them more assertive and better aware of their collective action potential . This form of empowerment must precede community driven development through common interests groups and village institutions that remain unrepresentative of the poor and unaccountable to them , . An excessive preoccupation with participation in the DPIPs without ensuring that conditions exist for the poor to participate may not serve their interests and reinforce the elite domination that is already pervasive . Donors prefer so-called community driven initiatives as disbursals are quicker but the price of impatience may well be high .

Concluding Observations

Some observations are made below to assess the DPIPs from a broad policy perspective.

There is a growing realisation now that local communities- especially the poor- must have an important role in the design and implementation of programmes that are meant for their economic and social upliftment. Social funds are a response to this concern. Their record, however, has been mixed. Provision of services continues to be supply- driven but with a different cast of characters. Local priorities and needs –especially of the poor- are either sidetracked or addressed inadequately. Some evidence also suggests that communities often demand services that they are likely to get as opposed to what they really need.

The DPIPs in India seek to overcome some of these constraints by giving the local communities-especially the most disadvantaged- a central role in the design and implementation of sub-projects that are vital to their livelihoods. In pursuit of this objective, an elaborate organisational structure at the state, district and village levels is created to ensure that local needs and priorities are given due importance. Since the poorest or most disadvantaged lack awareness of various options under this Project and organisational skills to design and implement sub-projects, their capacity-building is a key strategic element. Another key strategic element is attitudinal and behavioural transformation of various stakeholders-especially bureaucrats and elected representatives- through sensitisation programmes.

That these innovations may make a difference to the lives of the rural poor cannot of course be ruled out. However, some of the risks to which earlier critics of Social Funds have drawn attention must not be overlooked, albeit their forms may be different. Bureaucratic control and interference at the state and district levels would result in supply side distortions; at the village level, the Panchayat members would cater to the interests of the local power structure while the CIGs are likely to exclude the poorest. Unless the poor have the collective strength to affirm their interests, they are not likely to benefit much from this new initiative. This is of course easier said than done but a shift of emphasis from participation of the poor to their moderate but sustained economic betterment is the key to their empowerment. More careful attention to income enhancing options through rural public works would thus have a higher payoff over time than merely channelling funds to hastily formed CIGs without adequate representation of the poorest, and for activities that are weakly linked to their well-being.





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BARRIERS TO CHANGE: WHO GETS THE BLAME?
The idea of eliminating defects in the American school systems is ongoing. Administrators concerned with successful reform must ask themselves and the educational community what will be most important for students to lead productive lives in the future. The effectiveness of school organization and change depends upon the attitude of the administration. If what James McGregor Burns stated is true that leadership is one of the most observed, but least understood phenomena on earth, then we may need find a way to better understand leadership. Since schools' bureaucracies are deeply entrenched in tradition, change, especially from the top, seems unlikely to be effected without paying a price in the relationships between and among superordinates and subordinates within the organization. A seminar to discuss reform and restructuring held with several northwest Georgia administrators during the summer of 1996, produced another concern. Administrators unanimously stated that a lack of respect was found among student-teacher relationships. They also found instances of faculty-to-faculty disrespect as well as an abundance of apathy on the part of students, parents and the community. Thus, how faculty perceives the quality and knowledge of leadership and any barriers to effective change are important factors to study. Without an understanding of perceived barriers, change or reform within an organization cannot take place in the most superficial of practice. Most school reform and/or restructuring efforts target some form of shared governance or shared-decision making concept. The purpose of this study was to explore perceived barriers to shared governance or site-based shared decision making among public school faculty members in northwest Georgia.
Methodology
Based on a study of intimidating behaviors of school administrators, a survey questionnaire was developed to examine barriers to shared-decision or site-based decision making. The questionnaire consisted of six perceived barriers: ethics, gender bias, political interference, harassment, communication, personal values, cultural diversity, and resources. Respondents indicated the level of agreement (Likert scale) as to who was responsible for each barrier-the faculty or the administrator. Three open-ended questions were included on the questionnaire.
1. How do you define shared governance?
2. Through what actions and by whom is the concept of shared governance expressed in
your school?
3. Through what actions and by whom would you like to see the concept of shared governance
expressed in your school?
Demographic information was obtained from each respondent. The responses were compared by the demographic categories produced for these variables: current position (faculty or administrator), gender, school level (elementary, middle, and high), school location (urban, rural, suburban), school system (city or county), and years of teaching experience (at five year intervals). The sample consisted of one hundred-thirty graduate students from seven education classes (supervision, curriculum, research methods, and school law) held in various sites throughout northwest Georgia.
Although the sample was a convenience sample, the distribution of the demographic variables indicate that it was representative of students enrolled in graduate programs at the State University of West Georgia. Importantly, over half of the students (57%) reported that their school was participating in shared governance. Sample characteristics include the following:
86% faculty and 14% administration;
80% female and 20% male;
51% elementary, 23% middle, and 26% high school;
12% urban, 36% rural, and 52% suburban;
88% county and 12% city;
Teaching experience was fairly evenly distributed through the four categories, with a range of 17% (11-15 years) to 30% (0-5 years and 16+ years).
Findings
Two non-parametric statistical procedures were used to test the hypothesis of independence using nominal and ordinal data: the Mann-Whitney test, also known as the Wilcoxon test, and the Kruskal-Willis one-way analysis of variance. The former was used to test the independence of the nominal variables (e.g., position and school system) and the latter for the ordinal variables (e.g., school level, school location, and years of teaching experience). Content analysis was used to examine the patterning in the responses to the open-ended questions.
Barriers to Shared to Governance
Respondents whose schools were not participating in shared governance showed statistically significant differences in opinion from those whose schools were participating in shared governance in all barrier, except resources. Those not participating in shared governance attributed barriers to both members of the faculty and administration in: ethics, gender bias, harassment, personal values, and cultural diversity. They felt the administrator were more responsible than the faculty for the barriers of political interference and communication.
ETHICS
Significant difference between school location indicated that urban school personnel agreed more than rural and suburban that the both faculty (K-W, p<.02) and the administration (K-W, p<.006) are responsible for this barrier. Although the results were not significant (K-W, p>.05), the teachers in city school systems agreed more than county systems that both the faculty and the administration are responsible for this barrier. Also, elementary school personnel agreed more than middle and high that the administrator is responsible for this barrier.
Gender Bias
Significant difference was found between school locations, with urban school personnel agreeing more than rural and suburban that both the faculty (K-W, p<.02) and the administration (K-W, p<.01) are responsible for this barrier.
Personal Values
No significant difference was found between school level yet elementary school personnel agreed more than middle and high that the administrator is responsible for this barrier (K-W, p>.05).
Cultural Diversity
Significant difference was found between faculty and administrator (W U, p<.07), with more faculty agreeing that the party responsible for this barrier is the faculty.
Opinion differed by number of years taught with those teaching less than five years believing that the faculty were responsible for this barrier (K-W, p<.04). Interestingly, the opposite was found between city and county school systems (M-W u, p<.02), with city systems showing more agreement than county that the administrator is responsible for this barrier.
Significant difference was found between school location, with urban school personnel agreeing more than rural and suburban that the responsibility for this barrier is shared by both the faculty (K-W, p<.03) and the administration (K-W, p<.02).
Resources
Significant difference between school location, with urban school personnel agreeing more than rural and suburban that both the faculty (K-W, p<.01) and the administration (K-W, p<.02) are responsible for this barrier.
Definitions of Shared Governance
Eleven percent (14 of 130) of the students surveyed did not respond or state that they did not know what shared governance meant. Of those responding (N=119), nearly everyone mentioned the defining attributes of rule by faculty, staff and administration. These included their perceptions that the decisions made in school are done by the administration and the faculty working together toward a common goal and purpose; the faculty and administrators make decisions and policy together for the school; shared governance is the school management system whereby everyone involved has ownership. All participants share in decision making and taking responsibility. These participants also perceived their administrator as a facilitator. Teachers actively participating in building decisions such as instructional management, and teachers work as team member with administration to accomplish the goals of the school.
Very few responses included students (n=4 of 119, 3%), parents (n=3 of 119, 3%), or the community (n=3 of 119, 3%) in their definition of shared governance.
The next open-ended question asked: Through what actions and by whom is shared governance expressed in your school?
Thirty-four (26%) of those surveyed did not respond or stated that no actions were being taken with respect to shared governance in their school.
Seventy-four per cent (n=96 of 130) were involved in some form of shared decision making. However, no one described specific actions that were being taken in their school. Rather, they wrote of processes and meetings-school improvement committees, participation in Leadership Teams, Design Teams, or Empowerment Committees. Members of these teams, or those involved in shared governance, typically were the faculty and the administration. Participants mentioned that shared governance is done through committee made up of the administrations such as Leadership Team Committee. Others stated that they have "school improvement committees" and each faculty member has the opportunity to serve on these committees or to recommend and follow through on goals established to better the school.
The principal and executive council usually set agenda for committee meetings school improvement teams and executive council (one member of each of five teams and two members at large) task forces.
At some schools, a teacher advisory council includes a teacher from each team and from the exploratory classes. This council discusses various school policies and toss around ideas for new rules or lessening of rules.
Very few of the participants (2 of 96, 2%) specifically mentioned the curriculum. The only comments made concerning curriculum were that the leadership team meets weekly then in turn they meet with their team or grade level to share ideas and activities to carry out the curriculum and its enhancement. One other comment was that the current principal uses joint or shared decision making only in areas concerning the curricular issues. Through what actions and by whom would you like to see shared governance expressed in your school?
Thirty-seven (28%) of those surveyed did not respond or stated that they did not know what their school could do to participate in shared governance. Seven-two per cent (n=93 of 130) had opinions either regarding how they would like to see their school involved in shared decision making or whom they felt should be responsible for the actions. Interestingly, although accounting for only 14% (13 of 93) of those with opinions, most were satisfied with current efforts in shared governance at their school. Other expressed a diversity of opinions regarding actions for improvement: curriculum, texts, materials, activities, and schedules (12 of 93, 13%); rules (3 of 93, 3%); general school policies and procedures (3 of 93, 3%); discipline (2 of 93, 2%).
Others indicated who should be responsible for these actions: teachers, faculty, staff (28 of 93, 30%); both faculty and administration (11 of 93, 12%).
Some respondents volunteered persons who they perceived as barriers to change in their system: state, county, school board (8 of 93, 9%); administration, principal (5 of 93, 5%).
Comments representative of actions and who should be responsible included the following: "I would like more voice in important school issues (discipline, curriculum, schedules)." "More say so in the texts used on the various grade levels by the teachers, instead of choosing the same textbook company for all grades." "Curriculum and classroom management. Teaching staff making more decisions concerning policies regarding the above mentioned." "I would like teachers to be able to enforce their rules and be able to teach what and how they think is best (not same for 200+ students of all different abilities)." "All actions hiring, rules, schedules should be governed by a team. The team should consist of new teachers as well as more experienced." "Faculty and administration working together with less involvement from the central office." "I would like to see shared decision-making by administration and faculty in regards to curriculum."
Comments about the county, state or school board as barriers included these remarks: "I don't think the problem lies within the school as much as the restrictions set by our county office or the state." "The county administrators need to give us an even freer hand to do such things as establish a school dress code (uniforms), decide our own yearly schedule or decide if and when we will do standardized testing."
Regarding the principal or other administrators as barriers: "Principal should have more say and be heard by the board." "There should be more actions on the part of the principal. Principals must be willing to share their power."
Conclusions
Responses to the open-ended questions were meaningful and somewhat surprising because of the plethora of literature on shared governance and/or the number of school districts that practice, in various degrees, this concept. It should be noted that city systems are smaller units-usually consisting of no more than two or three elementary schools, one or two middle schools and one high school.
City school personnel, perhaps because of size, indicate a joint responsibility toward barriers of practicing ethics. They believe, however, that the administrator is a barrier to resources and also for a lack of cultural diversity. This is interesting because there is usually more diversity found within the city limits, and there are often more tax dollars available to schools-especially when the city system is also in an urban area.
Elementary schools, by nature, are smaller units than most middle schools or high schools, and a "family" atmosphere may account for the fact that elementary school personnel believe the principals is a barrier to personal values and ethics which are closely related.
Of particular interest are the responses from urban areas regarding gender bias, cultural diversity, and resources. Urban school personnel find that both the faculty and administration are barriers in these three areas. Knowing this, the implications are that these barriers be addressed, in detail, not only through some method of staff development, but also in college courses.
Of note is that most of the new schools are being built in the suburbs which may imply greater resources, yet the beliefs of suburban respondents regarding changed were most aligned with rural teachers.
A summary of the responses to open-ended questions may provide some insights as to how and why faculty members perceive barriers to shared governance. Most participants defined Shared-Decision-Making as a process: developing teams, belonging to teams/committees. Very few responses mentioned the curriculum, the students, or the community-at-large as being a part of the actions. Responses regarding how they would like to see shared governance expressed are dealing with procedures, and materials.
Implications
Until the educational community can get together to fully understand that reform, restructuring, or renewal efforts should impact student achievement, and shared governance should focus on those concerns, there will be barriers to implementation. The focus, perhaps, is not where it belongs.
 
An Analytical Study on Multiple Mergers in India

Mergers, acquisitions, and corporate control have emerged as a major force in the modern financial environment and have been the subject of study in the literature, largely in the western context. In an attempt to fill the gap in such studies in the Indian context, particularly with reference to multiple mergers, Rajesh Kumar and Prabina Rajib analysed the financial characteristics of fifty-three firms involved in multiple (more than three) mergers between 1993 and 2002, based on industry sectors. The control groups were matched on the basis of industry sector and sales in the earliest year of initiation of merger activity.

The study found that the average sales, profits and cash flow for a period of ten years were higher for the merger firms as compared to a control group matched by industry and size. A logit model was applied to measure the probability of acquisition as a function of the financial characteristics of the multiple merger acquirer firms. The study finds evidence which is consistent with the market power and size hypothesis of merger theories.

The results indicate that low financial leverage and unused debt capacity appear to be motives for firms to use multiple mergers as a strategic business tool. Thus a firm's capital structure appears as an especially important variable in the decision to become a multiple merger acquirer. The results suggest that mergers are used to maximise the size of firms to revitalise the bidding companies. Firms with low debt levels and free cash flows may also incur agency costs by investing in multiple merger activity. Multiple mergers could also become a tool to increase the management's efficiency in producing sales per value of assets. Firms whose main shareholder power is not strong are more likely to involve in multiple mergers.
According to a World Bank estimate, the proportion of the world's population over 60 years of age will almost double from the present 9% to 16% over the next 35 years. While populations are aging rapidly, traditional family systems are weakening under pressure of urbanisation, industrialisation and increased mobility. Systems providing financial security for the old are consequently under increasing strain. Developed and emerging economies the world over are carrying out pension reforms. The World Bank suggests a three pillar approach for averting old age crisis, the three pillars consisting of publicly funded tax financed pension for the poorest of the poor, privately managed mandatory savings accounts for those employed in the organised sector, and voluntary retirement savings accounts for the self employed. The trend has been to move away from defined benefit pension schemes to defined contribution pension schemes since it is difficult to keep the promise of defined benefit of indexing pensions. In India too the publicly managed pension scheme is moving into a fully funded defined contribution scheme. However a pension scheme that assures members a standard of living during retirement even when prices rise is definitely desirable.

Pushpa Bhatt proposes a model that addresses the design of second and third pillar pensions while attempting to retain the essence of indexing and linking the benefits to last pay in a funded pension which is essentially a defined contribution plan. Further a broad approach to pension products planning is suggested. Although the model has some limitations - it works with a constant discount rate, a constant rate of inflation and a static mortality table and does not take into account the costs of fund management - it will be useful for employers designing pension schemes for their employees and also for insurance companies for planning a variety of pension products.

Products and services offered for sale to customers need to be differentiated as customer taste, preferences and likings are not uniform. Although demographic segmentation is used most commonly in marketing, members of the same demographic group differ in their behaviour as consumers, which is why psychographic segmentation or segmentation on the basis of personality-related variables is more useful. Worldwide, segmentation schemes like the Values and Lifestyles System (VALS) are popular. However, in India no systematic effort has been made to constantly track the psychographic behaviour of the population.

In this paper, Paromita Goswami attempts the psychographic segmentation of college-goers in Kolkata, on the basis of the values they feel are important, and their activities, interests and opinions (AIO). Multivariate statistical analyses yielded five psychographic segments - Life-loving Go-getters, Politically-conscious Positivists, Independent-minded, Destiny-believing Pessimists and Happy-go-lucky Dependents. The segments were described in terms of both demographic and psychographic characteristics. The purchase frequency of various products and services was observed and the difference in purchase frequency of the different psychographic segments was evaluated. It was found that Life-loving Go-getters and Politically-conscious Positivists had a much higher frequency of purchase for different products and services and hence could be considered the most important target groups for the marketer, followed by the Independent-minded and Happy-go-lucky Dependents. This segmentation would not only be helpful in the proper targeting and positioning of products and services in the vitally important youth market, but also in deciding the advertising layout or copy by the creative departments of advertising agencies.
The introduction of economic reforms in 1990 and the subsequent revisions in Indian income tax laws for rationalising the tax administration of India have resulted in the increase of tax collections from the individual assesses from Rs 24.56 billion in 1990 to 103.76 billion in 2000. However, these figures do not provide any information as regards the relationship between tax rates and revenue. Jaspal Singh and Poonam Sharma carried out a study with the objectives of: (1) estimating the progressivity of the Indian income tax system along with the measurement of responsiveness of the individual assessees; (2) estimating the built-in elasticity and buoyancy elasticity of the individual income tax system of India; and (3) finding out the determinants of individual tax responsiveness in India. The study used a modified version of G S Sahota's methodology, and incorporated the income expansion effect, the dynamic progressivity effect, the technical effect of tax rate changes and the taxpayer responsiveness to tax rate changes. A regression equation was fitted to the data points to study the long-run quantitative relations and the determinants of responsiveness.

The findings of the study clearly show a fluctuating trend with respect to the relationship between tax rates and revenue during the post liberalisation period. The average effective tax rate has also showed a declining trend particularly after 1995-96. Built-in elasticity and buoyancy elasticity are very far from the magic figure of unity, thus reflecting a very poor tax administration. The major reasons for poor responsiveness are the narrow base, which is mainly confined to the salaried class, and the fact that very little consideration has been given to the enforcement provisions in the tax statute. There is also an urgent need to address the increasing manpower requirements of the tax department.

Globalisation and liberalisation have brought a sea change in the way business is carried out. Instead of going in for vertical integration, original equipment manufacturers have started concentrating on their core competencies and outsourcing other components and services, and organisations are spending on software and new technologies for the seamless integration of the supply chain and to increase overall supply chain profitability. One such technological development, which has been in use in developed countries for over 30 years for routing decisions, town planning, etc, is the Geographical Information System (GIS). In India, although several large companies have been using GIS, its penetration has not been to the desired level, primarily due to the high costs involved. This situation may change as the National Highway Authority of India has launched a web based integrated Road Information System (RIS), coupled with GIS.

This student essay, which won the Third Prize in the IIMB Management Review Student Essay Competition, 2006, is an attempt to address supply chain management from the information perspective and discuss how technology like RIS will affect one of the critical drivers for the performance of supply chain i e, information. Rohit Nishant and Mohammad Illyas also suggest some potential uses of this initiative. If RIS can be extended to provide multi-modal transport solutions, it can serve as a complete tool for routing. It can also serve as a model for developing a nation-wide GIS system with micro-details, including demographic information, on every part of the country, which can be used by the government for town planning and planned infrastructure development. The government however needs to come up with a comprehensive national spatial policy to address issues of security and information sharing
Unlike the rest of the Indian market, which started opening up only in 1991, the power sector was opened up as early as the late 1970s. Forced to compete even in the home market with international giants, Bharat Heavy Electricals Limited (BHEL) was one of the few companies which were prepared to face the challenges of liberalisation. Established in 1956, BHEL is today the largest engineering and manufacturing enterprise in India in the energy-related/infrastructure sector and has won several awards for environmental conservation, development of nuclear equipment, etc. Unusually for a public sector company, BHEL has been earning profits continuously since 1971-72 and paying dividends since 1976-77. In an insightful interview, the CMD, Mr Ashok Puri, spoke to Prof Rishikesha T Krishnan about the reasons for BHEL's impressive track record and its plans for the future.

Having successfully leveraged the facilities and expertise already created for the power sector to create products for industry, BHEL has now reached a position where the challenge is no longer survival, but how to ramp up quickly in order to exploit the opportunities being offered by the Indian economy. It is outsourcing most of its low end technology manufacturing and concentrating on high tech manufacturing within the organisation. It is also looking at setting up joint ventures in areas like nuclear business with some of the international giants. In keeping with the international trend, the company is increasing the service content of its business and has set up a separate business group for services and spares. Ashok Puri describes BHEL's strategies with regard to innovation and R&D; its HR policies and its open 'can do' culture that keeps its employee turnover one of the lowest in the country; and its plans for going global.

Significant amounts of capital are flowing from the developed world to emerging markets. But how do firms in the developed world value investment opportunities and allocate capital in emerging markets? How do they adjust for risk and differences in institutional environments across borders? IIMB Management Review invited a panel comprising management practitioners, academics and other stakeholders to discuss the issues and challenges associated with cross border investment.

Amit Sharma, CFO, IBM India, explained the attractions of emerging markets to transnational companies - higher rates of growth and return, potential opportunity, economic efficiencies through access to resources at competitive prices, incentives from export-oriented governments and the opportunity to diversify risk through geographic expansion. IBM contrasts the financial/economic underpinnings of different countries before investing in them, and defines markets across the globe by the business and not by country boundaries. Sharma also detailed IBM's recent transformation as a business, where the company divested low growth, low margin, commoditising product lines, concentrating on annuity streams and transactional business, saying that despite risk-assessment and valuation methodologies, the investment or divestment decision was driven primarily by company strategy.

V Ganesh, CFO, Trianz, emphasised that the difference between US/Europe and emerging markets in the use of discounted cash flow (DCF) valuation models lies in the choice of Betas, the cost of capital, the quality of information and the need to factor in several risks. Interestingly, the Emerging Market Private Equity Association Survey of 2006 showed a return expectation of 16.9% from US markets and a premium of 5.8% to 9% over US returns across emerging markets. In a probabilities weighted scenario, the house concluded, the DCF numbers were only indicative and it was critical to reconcile them with 'gut feeling'.

T S T Ramanujam, VP, Finance, Serviont Global Solutions, a mid-size company in the contact centre optimisation space, recounted his experience of acquiring a software product company in the US. Indranil Chowdhury, CFO, Volvo India, brought in the manufacturing industry perspective, where investment decisions are contingent upon logistics - where the materials come from and where the markets are located, the ability to leverage core technology strengths, processes, manpower resource deployment, fiscal incentives, the regulatory framework, risk evaluation and corporate governance. The application of option pricing techniques in industry practice, the valuation of qualitative factors, and the convergence of valuation complexities between manufacturing and services came in for discussion.

While economic and political factors guide the choice of the investment country, in executing that decision, as H Padamchand Khincha, Chartered Accountant, detailed, companies look into the most efficient mechanism of entering the destination country, and removing capital or income from it. Capital flows, exit options, the tax regime of the destination country and the treaty network play a very important part. 'Treaty shopping' involves much expertise since in the actual performance, the contract is broken up into targets which are performed from different countries depending upon the concessions extended. Holding company legislations and Special Economic Zones are means employed by governments to encourage investment.

K Ramakrishnan, CEO, Spark Capital Advisors (India), used vital statistics to look at the critical drivers of capital flow, the investment criteria in different markets, the risk paradigm, mechanisms and models to price risks across countries, and a valuation framework in emerging markets. The booming stock markets and appreciating local currencies vis-a-vis diminishing yields in the developed markets, the low long term interest rates in developed economies presenting a risk adjusted interest arbitrage opportunity, the improvement in economic fundamentals in emerging markets, the relaxed capital controls and remittance regulations and the improved ability among fund managers to facilitate the risk management environment have all contributed to the healthy capital flow.
 
An Approach to the Design of Funded Pension Products
According to a World Bank estimate, the proportion of the world's population over 60 years of age will almost double from the present 9% to 16% over the next 35 years. While populations are aging rapidly, traditional family systems are weakening under pressure of urbanisation, industrialisation and increased mobility. Systems providing financial security for the old are consequently under increasing strain. Developed and emerging economies the world over are carrying out pension reforms. The World Bank suggests a three pillar approach for averting old age crisis, the three pillars consisting of publicly funded tax financed pension for the poorest of the poor, privately managed mandatory savings accounts for those employed in the organised sector, and voluntary retirement savings accounts for the self employed. The trend has been to move away from defined benefit pension schemes to defined contribution pension schemes since it is difficult to keep the promise of defined benefit of indexing pensions. In India too the publicly managed pension scheme is moving into a fully funded defined contribution scheme. However a pension scheme that assures members a standard of living during retirement even when prices rise is definitely desirable.

Pushpa Bhatt proposes a model that addresses the design of second and third pillar pensions while attempting to retain the essence of indexing and linking the benefits to last pay in a funded pension which is essentially a defined contribution plan. Further a broad approach to pension products planning is suggested. Although the model has some limitations - it works with a constant discount rate, a constant rate of inflation and a static mortality table and does not take into account the costs of fund management - it will be useful for employers designing pension schemes for their employees and also for insurance companies for planning a variety of pension products.
Products and services offered for sale to customers need to be differentiated as customer taste, preferences and likings are not uniform. Although demographic segmentation is used most commonly in marketing, members of the same demographic group differ in their behaviour as consumers, which is why psychographic segmentation or segmentation on the basis of personality-related variables is more useful. Worldwide, segmentation schemes like the Values and Lifestyles System (VALS) are popular. However, in India no systematic effort has been made to constantly track the psychographic behaviour of the population.

In this paper, Paromita Goswami attempts the psychographic segmentation of college-goers in Kolkata, on the basis of the values they feel are important, and their activities, interests and opinions (AIO). Multivariate statistical analyses yielded five psychographic segments - Life-loving Go-getters, Politically-conscious Positivists, Independent-minded, Destiny-believing Pessimists and Happy-go-lucky Dependents. The segments were described in terms of both demographic and psychographic characteristics. The purchase frequency of various products and services was observed and the difference in purchase frequency of the different psychographic segments was evaluated. It was found that Life-loving Go-getters and Politically-conscious Positivists had a much higher frequency of purchase for different products and services and hence could be considered the most important target groups for the marketer, followed by the Independent-minded and Happy-go-lucky Dependents. This segmentation would not only be helpful in the proper targeting and positioning of products and services in the vitally important youth market, but also in deciding the advertising layout or copy by the creative departments of advertising agencies.
The introduction of economic reforms in 1990 and the subsequent revisions in Indian income tax laws for rationalising the tax administration of India have resulted in the increase of tax collections from the individual assesses from Rs 24.56 billion in 1990 to 103.76 billion in 2000. However, these figures do not provide any information as regards the relationship between tax rates and revenue. Jaspal Singh and Poonam Sharma carried out a study with the objectives of: (1) estimating the progressivity of the Indian income tax system along with the measurement of responsiveness of the individual assessees; (2) estimating the built-in elasticity and buoyancy elasticity of the individual income tax system of India; and (3) finding out the determinants of individual tax responsiveness in India. The study used a modified version of G S Sahota's methodology, and incorporated the income expansion effect, the dynamic progressivity effect, the technical effect of tax rate changes and the taxpayer responsiveness to tax rate changes. A regression equation was fitted to the data points to study the long-run quantitative relations and the determinants of responsiveness.

The findings of the study clearly show a fluctuating trend with respect to the relationship between tax rates and revenue during the post liberalisation period. The average effective tax rate has also showed a declining trend particularly after 1995-96. Built-in elasticity and buoyancy elasticity are very far from the magic figure of unity, thus reflecting a very poor tax administration. The major reasons for poor responsiveness are the narrow base, which is mainly confined to the salaried class, and the fact that very little consideration has been given to the enforcement provisions in the tax statute. There is also an urgent need to address the increasing manpower requirements of the tax department
 
Product development is a relatively young field that has built
its portfolio of tools and techniques through the cumulative
experience of a large number of firms involved in product
development. Since competitive forces have for long forced
product development initiatives on firms that compete
intensively in developed countries, a bulk of the research
that has guided best practice in product development has
relied on the experiences of firms making products for
developed country markets. Major industries that have
contributed to knowledge creation in product development
are automobiles and aerospace – where the focus has been
primarily on creating better products faster while managing
costs within a reasonable threshold. However with the
stagnation of opportunities in developed country markets and
the emergence of developing country markets as the major
source for growth among multinational firms, the focus has
shifted to lowering costs while creating appropriate products
for these large potential markets. As firms from developed
countries seek ways of entering the growing developing
country markets, firms from developing countries like China
and India are also posing a challenge to these multinational
firms as they become the major providers of low cost services
and products to both developing and developed country
markets. There is thus increasing interest among academics
and practitioners in understanding the scope, challenges and
management of product development for developing country
markets. How far is the experience of firms making products
for developed country markets relevant for developing
country markets? What can we learn from the experience of
PDMA India Conference 2007
in association with
IIMB Management Review
Pr Product oduct De Development elopment f for or De Developing eloping
Countr Country y Mar Markets: ts: Scope, Challeng Challenges es
and Management
Date: December 17-19, 2007
Venue: Indian Institute of Management Bangalore, India
developing country firms that have built expertise in product
development for their home markets? Are there specific tools
and techniques that are more appropriate for product
development for developing country markets?
This PDMA India conference brings together academics and
practitioners in addressing the broad theme of product
development for developing country markets. We seek
insightful contributions in the form of papers and cases on
the theme as well as a broad range of issues relating to
product development including:
• Managing R&D and innovation efforts in developing
countries
• Product development strategy for developing country
markets
• Competitive strategies for developing country markets
• Managing product development teams within and across
developing country markets
• Managing risk in product development for developing
country markets
• Market research techniques for understanding diversity
in developing country markets
• Technology forecasting and portfolio management for
developing country markets
• Intellectual property protection and management in
developing country markets
• Product lifecycle management within and across
developing country markets
• Managing supplier involvement in product
development for developing country markets
• Reengineering and robust design of products for
developing country markets
• Adapting product development tools and techniques
for developing country markets
• Design for manufacturing, assembly and recycling for
developing country markets
• Innovative cost management in product development
for developing country markets
• Adapting products from developed countries for
developing country markets
• Managing and financing grassroots innovations for
developing country markets
• Innovations in industry – government – research
institution networks in developing countries
• Innovations in public services, financial services, egovernance
in developing countries.
Details on PDMA India activities are available on the PDMA India website: http://www.pdmaindia.org
Important Deadlines for Paper Submission
Extended abstract (500 words) due by: June 30, 2007
Intimation of acceptance: July 30, 2006
Full paper (6000 words) due by: October 30, 2007
Abstracts and full papers may be sent electronically in PDF format to: [email protected]. Abstracts of all
presented papers and cases will appear in the CD-ROM conference proceedings. Full papers and cases will not be
included in the proceedings and authors will retain copyright of their papers. In case of papers considered suitable
for IIMB Management Review, authors will be contacted and requested to submit their papers for the review
process.
• Theme workshops will be organised by PDMA India at IIMB in parallel with the academic conference
• Last date for conference registration (early bird rate): November 30, 2007
• Special rates for Indian academics and students
 
IMR S Student tudent Essa Essay y Com Compe pe petition tition 200 2007
IIMB Management Review (IMR) is pleased to announce the ninth annual Student Essay Competition, open to
post-graduate and doctoral students of all management institutions in India. Prize-winning entries will receive a
cash award and also be published in the journal.
Articles submitted for the competition may cover aspects of general management; corporate strategy, policy and
governance; finance, control and law; public policy; IT; marketing; OB/HR; technology and manufacturing; and
related areas like economics and social sciences. They must be conceptually sound and methodologically
rigorous, extend knowledge on particular topics of management either through empirical work or by building on
existing theory, and draw out the implications of the research for practitioners.
We are looking for:
• Application papers that draw innovatively on existing theory and practice to solve management problems
• Qualitative research aimed at developing frameworks for advancing theory, or synthesising existing concepts
into new theories
• Originality in thinking, writing and synthesis.
Authors of prizewinning essays must be prepared to revise them before publication, as recommended by the
referees and the editors of IMR.
Eligibility and Coverage
1. All current post-graduate and doctoral students of Indian management schools are eligible to submit their
essays.
2. Articles should not have been previously published or submitted elsewhere. Where articles are company
specific, a written clearance from the company is required to be attached with the submission.
3. Articles must not exceed 6000 words, exclusive of appendices, charts and annexures. Entrants may refer to the
guidelines for style and format. Entries not complying with these guidelines will be disqualified.
4. Joint authorship of up to three is permitted.
Evaluation
1. The entries will be evaluated by a panel of judges comprising academics and experts from industry. The
criteria will include clarity of presentation, adequacy of theoretical and research framework, adequacy of data
analysis (where applicable), contribution to the literature, legitimacy of conclusions and wider application. The
panel’s decisions are final and no correspondence or representations will be entertained.
2. The panel will award three prizes.
3. IMR reserves the right to withhold a prize if no entry is considered worthy of it.
Prizes and Closing Date
1. The First, Second and Third Prizes carry cash awards of Rs 20,000, Rs 15,000, Rs 10,000 respectively.
2. In the case of joint authors, the prize money applicable to that category will be divided among the authors.
3. In case of a tie for the first or second rank, each tied article will be awarded the full prize money applicable to
that rank.
4. The closing date for submission of entries, complete in all respects, is August 6, 2007 2007. Submissions should be
superscribed ‘IMR Student Essay Competition 2007’, and addressed to:
The Chief Editor,
IIMB Management Review
Indian Institute of Management Bangalore
Bannerghatta Road, Bangalore 560 076
 
National Rural Employment Guarantee Scheme:
A Preliminary Study
Submitted to
Centre for Public Policy, IIM, Bangalore

Abstract
The study looks at the initial implementation of the NREGS in four states of Gujarat, Rajasthan, Madhya
Pradesh and Maharashtra. While it is too early to come to a decision about whether the scheme has succeeded,
our analysis shows that it has been able to meet some of the main aims stated under the NREGA. However,
there are some concerns as well. The implementation has been top-down and there is insufficient demand for
work from the people themselves. The job-card creation process has come under widespread criticism and in
some places the work has gone on without issuance of job-cards to the workers themselves. Also, there is
widespread variation in the wage rates across regions and for different types of work. There is inequality in
wages paid and time taken to pay them across gender. Basic facilities such as a place to rest and drinking water
are not provided everywhere. Each state has shown variation in the manner in which the scheme has been
implemented. These differences are highlighted separately.
3
Contents
Introduction..................................................................................................................................... 4
Objective......................................................................................................................................... 4
Literature Review ............................................................................................................................ 5
Scope of the Project ......................................................................................................................... 6
Methodology................................................................................................................................... 6
Survey Design................................................................................................................................. 7
Discussion and Analysis .................................................................................................................. 7
Overall Analysis .......................................................................................................................... 7
Gender-Wise Comparison and Analysis.................................................................................... 20
Caste-Wise Comparison and Analysis....................................................................................... 20
State-Wise Comparison and Analysis ....................................................................................... 21
Field workers’ observations........................................................................................................... 27
Findings ......................................................................................... Error! Bookmark not defined.
Conclusion .................................................................................................................................... 28
References..................................................................................................................................... 29
4
Introduction
The National Rural Employment Guarantee Act (NREGA) was passed by the Lok Sabha on August 23, 2004. It
got its final approval from the President of India on September 5, 2005. This Act extends to the whole of India,
except the State of Jammu and Kashmir. There has been a long-standing demand for the NREGA from various
quarters and it has been praised as a major poverty-alleviation and employment creation initiative of the
Government of India. From a social and economic point of view, the main objectives of the Employment
Guarantee scheme (EGS) to be initiated by the Government under the auspices of the Act are:
• Creation of durable assets
• To ensure there are fewer deaths from starvation in the rural areas
• Stabilize agricultural production
• To provide minimum employment to villagers
• To reduce the pressure on urban areas created due to migration from rural areas
• To strengthen the livelihood resource base, boost the rural economy and to enhance the capacity of the
villages to sustain themselves
Among the precursors of the NREGA, we had the EGS in Maharashtra. This scheme has been known for its
widespread corruption and its inability to create permanent assets in the rural areas. Accordingly, the NREGA
tries to anticipate some the problems by emphasizing the need to create permanent assets and to ensure that
there is no conflict between the schemes initiated under the Act and agricultural production. Hence, the schemes
are expected to be introduced and completed during the lean season of agricultural production as far as possible.
This paper will be looking at the theoretical underpinnings of the NREGA and the operational aspects of the
schemes. The paper presents findings from a study involving 1093 respondents that comprise beneficiaries of
the NREGS across four states and 10 districts.
Objective
The objective of this paper is to look at the financial and economic aspects of the NREGA. It will be studying
the implications for the rural economy as a result of the minimum wage and employment instituted by the Act.
Also, the greater bargaining power of the rural workforce and its implications on the job-markets will be looked
at.
5
Literature Review
Gaiha (2000) argues for a shift of emphasis from larger outlays on two major anti-poverty schemes - the rural
public works (RPW) and integrated rural development (IRDP) programmes to improvements in their design and
implementation. The author contends that higher outlays on the schemes do not matter much, as they tend to be
used inefficiently
Dev (2002) studied the experience over twenty-five years of the Maharashtra Employment Guarantee Scheme
and came up with implications for development policy in other Indian states. The study shows that India needs
public works as one of the mechanisms for poverty alleviation. The point made is that the public works
approach to unemployment would make sense only if it is so organized that there will be progressively less and
less reliance on it, so that ultimately it becomes redundant.
Nayyar (2002) states that both rural works programmes and labour-intensive infrastructure projects are required
for poverty reduction at India’s present level of development. The author states that the problem has been that
the Employment Assurance Scheme was universalized leading to a thin spread of resources and hence little
impact on the poor. It needs to be better targeted.
Drèze (2004) presented preliminary estimates of the financial implications of the NREGA. In the “baseline
scenario”, whereby a nation-wide Rural Employment Guarantee Programme is gradually introduced over a
period of four years, the total cost of the Programme was estimated to rise from 0.5% of GDP in 2005-6 to 1%
of GDP in 2008-9.
Basu (2005) mentions that the NREGA eliminates explicitly two important criteria inherent in Employment
Guarantee Schemes (EGS), particularly those that have been instituted in the State of Maharashtra: (i) public
works programmes should not compete with agricultural labor hiring decisions and (ii) public works
programmes should generate a productive asset that directly impacts agricultural productivity.
Pellissery (2005) looks at the limitations of the principle of self-targeting, which is often considered as the fasttrack
solution to justify the inclusion of the poorest households into Public Works Programs (PWPs).
Gaiha (2004) argues that the contribution of the EGS to political activism and building of coalitions among the
poor is of considerable significance in itself, as it makes the political system more responsive to their interests.
A sense of collective identity – despite social and religious differences – is inculcated through close interaction
on work-sites.
6
Scope of the Project
The data was obtained on the implementation of the scheme from DISHA, a rights-based NGO working mainly
in Gujarat. Hence, the scope of the field study will be restricted to the initial experience in the ten districts that
have been chosen for the first stage of NREGA implementation. Of these, five lie in Gujarat, two in Madhya
Pradesh and two in Rajasthan and one in Maharashtra. However, papers and articles have been referred to look
at the national picture as well.
Methodology
The project intended to cover four states and 10 districts where the NREGA has been implemented. The
research design targeted a sample size of around 1100 from these districts with at least 25% female responses,
keeping in mind the likelihood of a higher male participation under the various schemes. The districts to be
covered were Banaskantha, Dahod, Dangs, Panchmahal and Sabarkantha in Gujarat, Dhar and Jhabva in
Madhya Pradesh and Udaipur and Dungarpur in Rajasthan and Dhule in Maharashtra. There was a constraint on
the choice of districts since the national government has implemented the NREGA in only the poorest districts
in each state as of now. From the 6 districts in Gujarat with NREGA, 5 were chosen for our sample and the 2
districts of Rajasthan, 1 from Maharashtra and 1 from Madhya Pradesh were chosen in order to do a
comparative study of the tribal belt. The districts chosen from Madhya Pradesh and Rajasthan are the
surrounding ones of Gujarat comprising the tribal belt. Thus, there is some similarity across the districts on
demographics. Further all the people surveyed belonged to economically and socially backward regions that
were pre-selected by the government choice for implementation of NREGA. In Maharashtra, we could not
conduct the survey since the work had not yet started under the NREGA. Hence, we have added the fieldworkers
observations (garnered on basis of interviews with administrators and villagers) regarding the initial
implementation of the scheme.
Once the districts were selected, the field workers approached the Taluka offices in each of these districts to
gather information about the kind of work undertaken under the scheme. On the basis of the data from the
Taluka offices, villages were chosen randomly. The job cards lists were then collected from the Panchayats in
each of the villages and people in each of them were chosen randomly. In selecting the places, care was taken to
ensure only those samples where work was being done in November and early December 2006 or those where
work had just gotten over a week before the actual survey.
A cross check with the Census data was also undertaken in order to ensure that the sample is representative of
the percentage of Schedule Caste/Schedule Tribes as well as literacy rates.
7
Survey Design
The purpose of the survey was to assess the following:
&#56256;&#56451; Studying the operational aspects of the Act
&#56256;&#56451; Information about the schemes initiated by the Government and the initial track record of
implementation
&#56256;&#56451; Assessment of the overall package being provided to the rural areas and assessing whether any
improvements can be made to the features of the schemes listed in the Act
The survey would involve around 25 field workers interviewing with beneficiaries of the scheme to record their
responses on various aspects of the NREGA. The questionnaire was developed in consultation with Disha. A
pilot study was undertaken with a sample of 100 in Gujarat, on the basis of which the questionnaire was
modified.
Discussion and Analysis
Overall Analysis
Responses were obtained for 1093 respondents across 8 districts. There were 764 respondents in Gujarat, 63 in
Madhya Pradesh and 266 in Rajasthan. The main work undertaken under the NREGS was in the area of
construction of roads, check-dams and ponds, as well as cleaning of ponds, canals and lakes. Of the
respondents, 820 were male and 273 were female. The district-wise and age-wise break-up of the sample is
given in the tables below.
Table 1: District-wise break-up of sample
District Number of Respondents Share in Overall Sample
Banaskantha 99 9.06%
Dahod 180 16.47%
Dang 58 5.31%
Dhar 63 5.76%
Dungarpur 210 19.21%
Panchmahal 147 13.45%
Sabarkantha 280 25.62%
Udaipur 56 5.12%
Total 1093 100 %
8
Table 2: Age-wise break-up of the sample
Age Count Share
18-25 169 15.46%
26-35 337 30.83%
36-45 340 31.11%
46-55 188 17.29%
56 & above 58 5.31%
Total 1093 100 %
Table 3: Gender-wise break-up of the sample for each district
Gender Distribution
Male Female
Banaskantha 83 16
Dahod 134 46
Dang 5 53
Dhar 56 7
Dungarpur 149 61
Panchmahal 135 12
Sabarkantha 206 74
Udaipur 52 4
Total 820 273
Education: The average education of the sample is 4.48 years. Hence, we can say that the respondents do not
have a high level of education. However, there were 174 respondents who had studied at least till 10th standard.
On average, our sample had individuals with family-size of 5 members.
Asset ownership: 639 (58% of the overall sample) people surveyed had land and the average land-holding was
2.7 acres per family. 164 described themselves as land-less laborers. Majority of the land under cultivation was
irrigated. Among the sources of income, agriculture was mentioned as a source by 519 people, labor by 814
people and animal husbandry by 384 people. There was a considerable overlap between the first two categories.
Majority of the sample, as many as 85% of the respondents, lived in kuchha (mud) housing.
Nutrition: Another means of finding out the economic and nutritional status of the respondents is to find out
consumption of the basic food-grains, milk etc. The table below gives the same. As can be seen, jowar and corn
are the main food-grains for the regions surveyed. Corn is the staple food in Dahod, Banaskantha, Panchmahal,
Dungarpur and Udaipur. Wheat is the staple in Dhar and Sabarkantha.
9
Table 4: Per capita consumption of basic foodstuffs
Foodstuff
(kg)
Banas
Kantha Dahod
Dangs Dhar Dungarpur
Panch
Mahal
Sabar
Kantha Udaipur Overall
Wheat 6.67 4.28 8.59 9.48 7.75 2.54 5.47 2.81 5.59
Corn 9.77 13.50 7.61 8.30 8.64 12.01 3.61 11.53 9.00
Bajra 8.33 7.81 - - - 3.32 1.41 - 1.91
Jowar - 5.00 0.26 8.33 - 3.33 - - 0.08
Rice 2.15 3.05 0.93 1.45 2.48 2.91 1.67 - 2.23
Vegetable 1.95 5.67 2.16 2.20 1.97 2.61 12.69 0.30 5.72
Milk (litre) 0.90 2.45 1.62 1.66 7.75 2.42 7.79 - 4.01
Employment: Of the people who divulged their employment status, only 96 described themselves as fully
employed. 497 were half-employed, whereas 475 unemployed. Hence, we can see that at least in the early
implementation of the schemes in the areas surveyed by us, it is reaching its targeted audience of semiemployed
and unemployed people. The EGS will have another effect over time, desirable or otherwise. This is
to offer a wage rate that is competitive with the market-going rate and hence raise the market wage rate to a
higher level. This is because both the government scheme and the market would be competing for the same
workers in the labor market. Hence, the upward pressure on the market wage rate.
Sources of Information: For a government scheme to be effective, it is important for the public to be properly
informed about it. In our survey, it was found that the sarpanch was the main source of information about the
survey. Hence, local government is instrumental in making schemes like the EGS a success and the government
should ensure that it is incorporated into the decision-making process in the rural areas. After the sarpanch, the
NGOs became an important source of information.
10
Table 5: Source of information about EGS (not mutually exclusive)
Source
Banas
Kantha Dahod Dangs Dhar
Dungar
pur
Panch
Mahal
Sabar
Kantha Udaipur
No of
respondents
Scheme
Information - - - - - - 1.43% - 0.37%
Friends &
Family 28.28% 25.41% - 1.59% 1.43% 1.36% 1.79% - 7.78%
Newspaper 1.01% 4.42% - - 1.90% - 15.36% 5.36% 5.40%
Radio & TV - - 100% - 10.48% 0.68% 1.07% - 7.69%
Government
Offices - 13.26% 6.90% 4.76% 1.43% 0.68% 32.14% - 11.44%
Sarpanch 62.63% 77.35% 1.72% 96.83% 94.29% 70.07% 60.36% 89.29% 71.73%
NGOs 33.33% 59.67% 98.28% 6.35% 0.48% 48.98% 48.57% 3.57% 37.79%
Others - - 3.45% - - - 1.07% - 0.46%
Job-card Process Application: Of the people surveyed, 301 said that they did not face any difficulties during
the process of application for the job-card. However, there were 178 people who mentioned the fact that they
faced some difficulties in the job-card application process. Among the common problems mentioned were:
• Lack of proper information
• No job-card made
• Only temporary job-cards were made
• Problems with regard to the job-card itself, such as addition of name and photos.
Decision-maker about who works in scheme
Head of family
64%
All Family
Members
22%
Sarpanch
7%
NREGS
5% Self
2%
Figure 1. Making the decision about who works in the scheme in a family
11
Choice of individual to work in scheme: As the figure above shows, the head of the family (64%) usually
decides who from the family shall work in the scheme. In 22% of the families, the decision is taken by the
family as a unit.
Period of employment provided under the scheme: Of the people who have been able to obtain the job-card,
we find that the average period of employment is around 39 days. Since the scheme has started only sometime
in the last six months, this is a significant period of time. The frequency of days of employment for the overall
sample (among those who responded) is given in the table below. In Dangs, Panchmahal and Banaskantha, the
implementation of the scheme has been really weak and only 5, 11 and 20 days of employment has been
provided respectively. However, in Dungarpur (63 days) and Udaipur (67 days), the implementation has been
really strong.
Table 6: Number of days of employment under EGS
Number
of days
Banas
Kantha Dahod Dangs Dhar Dungarpur
Panch
Mahal
Sabar
Kantha Udaipur Overall
>90 - 1.11% - 4.76% 19.52% 0.68% 11.07% 16.07% 7.95%
80-89 - 2.22% - 6.35% 13.81% - 5.71% 10.71% 5.39%
70-79 - 2.22% - 1.59% 14.29% - 10.36% 21.43% 6.95%
60-69 - 20.00% - 11.11% 11.90% 3.40% 8.21% 19.64% 9.78%
50-59 - 1.67% - 3.17% 11.90% - 6.79% 8.93% 4.94%
40-49 15.15% 7.22% - 11.11% 4.76% 2.72% 11.07% 3.57% 7.50%
30-39 12.12% 27.78% - 9.52% 6.67% 9.52% 11.43% 8.93% 12.25%
20-29 25.25% 19.44% - 9.52% 6.67% 6.12% 7.86% 5.36% 10.42%
10-19 33.33% 3.89% 10.34% 22.22% 3.81% 10.88% 13.57% - 11.15%
0-9 14.14% 14.44% 89.66% 20.63% 6.19% 66.67% 13.93% 5.36% 23.67%
Average 20 35 5 35 63 11 48 67 39
12
Kind of work provided
42%
26%
16%
6% 7% 3% Pond work
Road work
Checkdam work
Canal Repairing
Pond work,Road work
Gram Vatika
Figure 2. The nature of work provided by the government
Nature of work provided: In 42% of the cases (figure 2 above), creation of new ponds and deepening or
cleaning of existing ones was undertaken. In 26% of the cases, work related to road construction and
maintenance was provided. Check-dam related work formed 16% of the cases. Hence, it is clear that the
emphasis is on creation of assets which form a part of the basic infrastructure for the community. In coming
years, the emphasis will be expected to be on maintenance of such assets as well as creation of employment
providing assets, rather than those that involve basic amenities.
Selection of workers
22%
20%
17%
13%
13%
7% 4% 4%
Panchayat
Talati
Contractor
Sarpanch
Talati, Sarpanch
Village People
Gangman
Self
Basis of selection
Agewise
64%
Ration card
24%
Jobcard
12%
Agewise
Ration card
Jobcard
Figure 3. Selection of workers and basis of selection for the scheme
Selection of workers and the basis for selection: As figure 3 shows, the selection of workers is done by the
Panchayat (22%), talati (20%), contractor (17%), sarpanch (13%) etc. While the NREGA prohibits the use of
contractors specifically, we found that they were still used in Dungarpur in Rajasthan. The basis of selection
was mainly age (64%), ration card (24%) and job card (12%).
13
Facilities for workers: An aspect that shows the seriousness of the government and the local officials towards
the scheme is the facilities provided to the workers. As table 7 shows, drinking water and first-aid boxes are
available. However, a place to rest is not so common. Even more importantly, only 26 respondents mentioned
availability of a crèche. This is important since the EGS is expected to be an attractive place to work for women,
since the place of work has to be close to their homes as per the stipulated rules.
Table 7: Availability of facilities (Percentage of respondents)
Facilities
Banas
Kantha Dahod Dangs Dhar
Dungar
pur
Panch
Mahal
Sabar
Kantha Udaipur Overall
Drinking
water 42.42% 20.00% - 79.37% 99.52% 40.14% 93.57% 91.07% 64.87%
First-aid
box 6.06% 16.67% - - 98.57% 32.65% 58.21% 50.00% 44.10%
Crèche 1.01% 5.56% - - 0.95% - 0.71% 1.79% 1.46%
Resting
place 9.09% 12.22% - - - 32.65% 34.64% - 16.10%
In terms of the various districts, Dungarpur, Sabarkantha and Udaipur have basic facilities like drinking water
and first-aid boxes. But resting places for the workers and crèches have not been provided adequately, as the
figures show.
The inspections under the EGS have been regular and were conducted by the following officials:
Table 8: Officials conducting inspections
Engineer Block Development Officer
Sarpanch Panchayat members
Taluk Panchayat members Supervisor
Village Clerk Talati
Patwari Village sevak
Sachiv Overseer
The frequency of inspections has been mentioned as weekly and bi-weekly by the workers. This is as per
expectation since the scheme has taken a central place in government expenditure.
14
Time taken for wage payments: The frequency of wage payment differs from place to place. In a few cases,
the salary has not been paid. But in most places this is not the case and the payment has been made. The time
taken for the payment is shown by the table below. Except Dhar and Sabarkantha, the wage payment takes more
than two weeks in the various districts. In Udaipur, it is even worse than most other districts and 62.5% of the
respondents got their wages after more than four weeks. But Panchmahal was the worst, as 44.9% of the
respondents did not get their wages paid at all.
Table 9: Time taken for payment of wages
Time taken
to pay wages
Banas
Kantha Dahod Dangs Dhar
Dungar
pur
Panch
Mahal
Sabar
Kantha Udaipur Overall
Less than
one week
24.24% 1.11% - 3.17% - 2.04% 2.50% 8.93% 4.12%
Between one
and two
weeks
17.17% 23.33% 0.00% 93.65% 17.62% 16.33% 52.50% 8.93% 33.03%
Between two
and four
weeks
43.43% 58.89% 93.10% 3.17% 79.05% 36.73% 31.07% 19.64% 50.32%
Above four
weeks
- 15.56% 6.90% - 3.33% 0.00% 11.43% 62.50% 11.07%
Not paid at
all
15.15% 1.11% - - - 44.90% 2.50% - 1.46%
Wages comparison
49
62
56
0
10
20
30
40
50
60
70
Agricultural wages Non-agricultural wages NREGS wages
Figure 4. Comparison of wages
Comparison of wages: As figure 4 shows, non-agricultural wages (Rs. 62 on average) were the highest, as
compared with NREGS (Rs. 56) and agricultural (Rs. 49) wages. This is in line with expectations. Usually nonagricultural
wages are higher than agricultural wages. Also, the NREGS wages are higher than agricultural ones,
which is the main reason the large farmers’ lobby is against the overlap of the scheme work with the peak
15
agricultural season. Such an overlap would push agricultural wages to a higher level than present and create
pressure on the large farmers. This is seen as desirable from the workers point of view.
Undertaking an analysis of the averages wages paid in the different types of work across districts shows that in
many instances (shown in bold italics), the wages paid are even below the minimum wages level decided by the
government (Rs. 50 per day for Gujarat). This is something that the government needs to look at. Otherwise the
purpose of the NREGS is defeated.
Table 10: Comparison of wages paid across districts
Banas
kantha Dahod Dangs Dhar
Dungar
pur
Panch
mahal
Sabar
kantha Udaipur
Canal repairing 40 20 53
Check dam 37 50 25 67
Gram vatika 50 50 53
Mud work 43
Pond work 35 49 60 58 52
Road work 40 56 56 39
Pond & road work 60 63
Effect on the Labor market: An important aspect of the job market is whether there has been a change in the
wage rates in the local job market since the inception of the EGS. At first it was believed that it is too early for
there to be any tangible change in the wage rates. However, as many as 174 respondents claimed that there has
been a change in the local wage rates since the EGS began. However, 327 workers also stated that there had
been no change in the wages since the EGS started. Except for Dangs and Panchmahal, in most of the districts
few respondents believed that there had been an effect on the wages.
Effect on Wages
0
19.35%
96.55%
0
11.11%
73.33%
30.67% 29.41% 31.80%
0
0.2
0.4
0.6
0.8
1
1.2
Banaskantha
Da
hod
Dangs
Dh
ar
Du
ngar
pur
Panc
h Ma
hal
Sabarkantha
Ud
aipur
Overall
Yes
Figure 5. Effect on wages (percentage out of those who responded to the question)
16
The change in wages is also shown by the higher wages paid to the agricultural laborers who are working in the
scheme. The survey shows that prior to the scheme, the agricultural wages were Rs. 40 per day. The average
wages under EGS are around Rs. 60 per day. However, it is also found that there is no difference in the average
wage rates for the forest workers. The average wages for them were Rs. 60 per day, which is the same as that
paid under the EGS. Hence, it is more beneficial for agricultural workers to work under EGS than forest
workers.
Wages were paid to gang-leaders mainly in Banaskantha, Dahod and Udaipur. In all the other districts, the
majority of the respondents got their wages paid on individual basis.
Payment of Wages
0.00%
20.00%
40.00%
60.00%
80.00%
100.00%
Banaskantha
Da
hod
Dangs
Dh
ar
Du
ngarpur
Panch Ma
hal
Sabarkantha
Udaipur
Overall
Gang
Individual
Figure 6. Payment of wages
The wages did differ in some places depending on the type of work. However, in most places there was little
change in wages depending on the type of work undertaken. Hence, there is not much incentive for the workers
to do more difficult work in the same project. Also, the wages are paid mainly on the basis of the amount of
work done by the workers and not on the basis of the time taken to do the work. Similarly, the payment is made
on the basis of measurement and standard practices rather than in the form of a lump-sum.
17
Different wages for different work
59%
41%
Yes
No
Figure 7. Difference in wages for different types of work
Difference in wages: It was found that majority (59%) of the respondents thought that different wages were
paid for different types of work.
Basis of wage payment
71%
29%
Amount of work
Time taken
Basis of wage payment
28%
72%
Lump-sum
Map
Figure 8. Basis of wage payment
Basis of wage payment: The main basis of wage payment was the amount of work undertaken (71%) by the
workers. Time taken to complete the work formed the basis in only 29% of the cases. In terms of lump-sum or
measurement, the majority of the payment was undertaken according to measurement of the work (72%) done,
with lump sum being used in 28% of the cases.
Table 11: Opinion about wages paid under EGS
Share of
respondents
Wages are fine 25.84%
Wages are not fair 74.16%
18
Fairness of wage structure: The majority (726 respondents) of the workers believed that the wages paid under
the EGS are not fair and that there should be an increase in the wage rates. However, 253 respondents accepted
the wages to be fair.
Usefulness of Assets Created: In contrast a very high number of respondents (89.12%) believe that the assets
created by the EGS will be of use to them. This is a welcome development in light of the EGS run in
Maharashtra where it was often found that the assets created often were not fit for use by the local people as
attention was not paid to the location, quality etc. of the assets.
There have been some instances of corruption, but very few have been quoted by the respondents. However, the
EGS is in a very early stage and it will take some time for the irregularities in the work practices to come out.
Work supervision
40%
22%
20%
10% 4%
2%
2%
Supervisor
Contractor
Engineer
Government
Clerk
Talati
Sarpanch
Figure 9. Supervision of work done
Supervision of work: Supervisors (40%) undertook majority of the supervision (figure 9). Inspite of the fact
that the NREGA does not allow use of contractors, they were used in 22% of the cases. However, this was done
only in Rajasthan. The engineers undertook supervision in 20% of the cases.
Coincidence with peak agriculture season
19%
81%
Yes
No
Figure 10. Coincidence with peak agriculture season
19
Seasonality of EGS: It was found that there is no tangible pattern regarding which season the schemes were
started in the rural areas. But 81% of the respondents believed that the scheme did not coincide with the peak of
the agriculture season (figure 10).
Effect on other Schemes: With regard to the other schemes run by the government, only 160 of the workers
believe that there has been a detrimental effect of running the EGS on the other schemes of the government, as
compared to 409 respondents who believe that there has been no change in the running of the other schemes.
This is important as the EGS is becoming one of the most important government schemes and will take quite a
lot of the government resources.
Dependence of workforce on EGS: Another important aspect to be studied is whether the scheme is breeding
any dependence on part of the workers. In case there is any, it would have a negative long-term effect on the
employability of those workers who work under the EGS. 680 of the respondents said that they still looked for
work outside the scheme, while 144 of them stated that they were not looking for any additional work.
Employment opportunities in the off-peak season: The opportunities differ from region to region. In some
places, forest work is available. In others, work in nearby towns is a possibility. Daily wage labor in nonagricultural
activities such as construction and working in the Rozgar Yojana is also an option for some people.
Some of the women prefer to do housework rather than seek employment in the off-peak season.
20
Gender-Wise Comparison and Analysis
This section discusses the analyses of the responses separated by gender. The intent was to see if there are any
differences in the patterns of responses for men and women. The main difference that came up was in the wage
rates. Women get paid an average rate of Rs. 34 in normal agricultural work, as compared to Rs. 44 for the men.
Under the NREGS, women are getting Rs. 53 per day as opposed to Rs. 63 for the men. Another discrepancy
was with regard to the payment of wages, where the time taken for payment of wages for women was longer
than that for men, as indicated in figure 11 below. Other than the issues regarding the wage rate, largely it was
found that most responses followed similar trends, indicating no statistically significant difference in responses
by gender.
Time taken for payment of wages
0.00%
10.00%
20.00%
30.00%
40.00%
50.00%
60.00%
70.00%
< 1 week 1-2 weeks 2-4 weeks >4 weeks
F
M
Figure 11. Time taken for payment of wages (gender-wise)
Caste-Wise Comparison and Analysis
In the caste-wise analysis, we found that the average agricultural rate for SCs was Rs. 46, whereas it was Rs. 44
for STs. Similarly, the NREGS wage rate was Rs. 50 for SCs and Rs. 47 for STs. Hence, the wage rates seem
comparable for both. In all other issues as well, we found that there was no significant variation on the basis of
caste.
21
State-Wise Comparison and Analysis
Here we must keep in mind that the sample size differs across states. There were 764 respondents in Gujarat, 63
in Madhya Pradesh and 266 in Rajasthan. However, the numbers are still significant enough to allow us to do a
comparison and draw some preliminary conclusions about the implementation of the NREGS.
Gujarat
81%
19%
Yes
No
Madhya Pradesh
5%
95%
Yes
No
Rajasthan
7%
93%
Yes
No
Figure 12. Problems with the registration process
Of the respondents who answered to the question illustrated in figure 12, Gujarat had 81% respondents saying
that they had problems with the registration process. The job card was either not provided at all, or was kept by
the Talati or Sarpanch. In some places, the absence of a photograph being taken meant that the card was not
created. By comparison, in Rajasthan and Madhya Pradesh, the problems were much fewer.
Table 12. Average employment provided
State Duration (Days)
Gujarat 31
Madhya Pradesh 35
Rajasthan 64
The duration of average employment provided was the highest in Rajasthan (64 days), followed by Madhya
Pradesh and Gujarat. In this parameter, as in others, presently Rajasthan seems to be doing better than the other
two states.
22
Table 13. Type of work provided
Type of work Gujarat Rajasthan Madhya Pradesh
Road work 26.77% 20.87% 67.21%
Pond work 33.01% 79.13% 32.79%
Gram vatika 4.58% - -
Check-dam 24.41% - -
Canal repairing 8.74% - -
Pond work & road work 2.50% - -
As can be seen in Table 13, road work and pond work are the two important types of work provided by the
scheme. Unlike Rajasthan and Madhya Pradesh, Gujarat has managed to have a more balanced choice of the
kind of work undertaken in the scheme.
Selection of workers
0%
20%
40%
60%
80%
100%
P
anchayat
Talati
Sarpanch
Talati,
Sarp
anch
V
illage Pe
op
le
Gan
gman
Contracto
r
Sachiv
Self
Gujarat Rajasthan Madhya Pradesh
Figure 13. Selection of workers for the scheme
The selection of workers is done mainly by the talati and the sarpanch in Madhya Pradesh. In spite of the
contractor not being allowed under the NREGA, we find that contractors still have a large role to play in the
scheme in Rajasthan. In Gujarat, Panchayat, talati and the sarpanch are the main functionaries who chose the
workers for the scheme.
23
Figure 14. The facilities available to the workers
Drinking water is available in most of the states. But the proportion is slightly less in Gujarat. However, the rest
of the amenities are not provided well, with only Rajasthan having sufficient work-sites with first aid. For
menial work, first-aid is a basic need. But even that is not provided everywhere.
Time taken to pay wages
0%
20%
40%
60%
80%
100%
Between
one and
two weeks
Between
two and
four weeks
Above four
weeks
Not paid at
all
Gujarat
Rajasthan
Madhya Pradesh
Figure 15. Time taken to pay wages
The time taken to pay wages is higher for Gujarat and Rajasthan than for Madhya Pradesh. In the first two
states, some workers have not been paid the wages at all.
Facilities available
0%
20%
40%
60%
80%
100%
Drinking
water
First-aid Creche Shelter
Gujarat
Rajasthan
Madhya Pradesh
24
Average wages paid
0
10
20
30
40
50
60
70
Gujarat Rajasthan Madhya Pradesh
Agriculture
NREGS
Figure 16. Average wages under agriculture and NREGS
In all the states, the wages paid under the NREGS are higher than agriculture in all the three states. Hence,
NREGS has led to an improvement in wages. But the wages for non-agriculture workers are generally higher
than NREGS, as shown previously in this paper.
Wages paid to
0%
20%
40%
60%
80%
100%
Gujarat Rajasthan Madhya Pradesh
Gang
Individual
Figure 17. Wages paid to gang or individual
In Gujarat, wages paid to the gang-leader are quite important means of wage-payment. While this is different
from Rajasthan and Madhya Pradesh, it does give the entire group an opportunity to unite together and air their
concerns through the gang-leader. The downside is that the individual worker is at the mercy of the gang-leader
for his/her wages to be paid.
25
Different wages
0%
10%
20%
30%
40%
50%
60%
70%
80%
Gujarat Rajasthan Madhya Pradesh
Yes
Figure 18. Whether wages are different for different work under NREGS
In Gujarat and Rajasthan, wages are different for different kinds of work. This is not so much a case in Madhya
Pradesh, according to the respondents. Different wages are to be expected, as some work can be much more
strenuous than others.
Wages paid according to
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
Gujarat Rajasthan Madhya Pradesh
Work done
Time taken
Figure 19. Payment of wages
The payment of wages is mainly done according to the work done in Gujarat and Rajasthan. In Madhya
Pradesh, in majority of the cases, the time taken to do the work is the main factor.
26
Who takes measurement
0%
20%
40%
60%
80%
100%
Clerk
Contractor
Engineer
Gov
ernment
S.O.
Supervisor
Talati
Sub-engi
neer
Gujarat Rajasthan Madhya Pradesh
Figure 20. Responsibility for taking measurement of work done
In Gujarat and Madhya Pradesh, the supervisor and the engineer are important when it comes to the
measurement of the work done. This is an important aspect as the payment of wages is done mainly after taking
the work done into account in most places. In Rajasthan, the contractor is important in this regard.
27
Field workers’ observations
Gujarat:
&#56256;&#56473; There was a lack of information provided about the scheme and even government officials felt that they
had not been adequately briefed
&#56256;&#56473; No work demanded by the people (which was the original aim of the scheme) and the decision to
provide work was taken by the senior government officials or local officials like sarpanch or talati
&#56256;&#56473; In many instances, only one job-card has been provided per family and also often only one job-card has
been issued per ration-card (which itself is issued one per family)
&#56256;&#56473; Job cards often kept by the sarpanch or talati and hence respondents do not have direct information about
their wage payments
&#56256;&#56473; Wage payment often delayed or wages not paid at all
Madhya Pradesh:
&#56256;&#56473; In many villages job-cards are being kept with sarpanch or the talati
&#56256;&#56473; Measurements of work done are being taken by contractor kept by panchayat (contractors not allowed
under NREGA)
&#56256;&#56473; In order to obtain any information, written requests have to be submitted, can be difficult and timeconsuming
&#56256;&#56473; Many people have not received their wages
&#56256;&#56473; People are not aware about the legislation
&#56256;&#56473; Often the worked is stopped in between and the workers are rendered jobless
Rajasthan:
&#56256;&#56473; In some instances the job-cards was kept by the sarpanch or talati
&#56256;&#56473; Corruption found in wage payment
&#56256;&#56473; Very high dependence on government officials (e.g., collector in Dungarpur) for the scheme to function
properly, little push from grassroots
Maharashtra:
&#56256;&#56473; Job-cards are not being distributed properly
&#56256;&#56473; Government is not putting applicants’ photos onto the cards (unlike, say, Gujarat), hence there is a delay
&#56256;&#56473; Of the 10 panchayats surveyed, only in only 2 have the people got job-cards
&#56256;&#56473; In eight, either the job-cards is with the Panchayat office, or has not reached at all
28
&#56256;&#56473; Many sarpanch do no have information about the NREGA
&#56256;&#56473; In the general public, very few people have information about the NREGA
&#56256;&#56473; Confusion between state-wise EGS and NREGS
&#56256;&#56473; Lack of clarity about the aegis of which schemes the existing work is going on
Conclusion
As we have seen, the EGS is already making a difference to the lives of the people. Yet there is a long way to
go. There are some issues in terms of the benefits to be drawn from the assets created by the scheme. Also, the
menial nature and the lack of encouragement for both skilled labor and further training is something that is of
concern in the long run. Implementation issues like issuance of job-cards on time is also a concern. Facilities for
workers would also have to be improved over time. From the labor market point of view, it would be important
to create a safety net through EGS for poor people without damaging the labor market and employment
prospects.
The next stage of this project (to be worked upon with DISHA) will include interviews with government
officials who are involved with the implementation of the scheme, in order to get a more complete picture of the
scheme. As part of the plan made with DISHA, it is hoped that the study will be turned into a longitudinal one
and will assess the implementation of EGS on an annual basis for the next few years.
29
References
1. Baland, J.M., Drèze, J. & Leruth, L. (1999), “Daily wages and piece rates in agrarian economies”,
Journal of Development Economics, Vol. 59, pp. 445–461.
2. Basu, A., Chau N. & Kanbur, R. (2005),“ The National Rural Employment Guarantee Act of India”,
entry for the Oxford Companion to Economics in India, OUP.
3. Basu A.. (2006), “A Theory of Employment Guarantees: Contestability, Credibility and Distributional
Concerns” downloaded from:
http://www.be.wvu.edu/div/econ/Seminar Series Spring 2006/Nancy Chau.pdf#search=%
22basu%20theory%20of%20employment%20guarantees%22
4. Dev M.S. (2002), “Employment Guarantee Scheme in Maharashtra: Lessons for Development
Policy”downloaded from: www.dse.unifi.it/sviluppo/doc/EGS_MDEV1.doc
5. Drèze J. (2004), “Financial Implications of an Employment Guarantee Act - Preliminary Estimates”,
Note prepared by author on behalf of the National Advisory Council.
6. Gaiha, R. (2000), “Do Anti-poverty Programmes Reach the Rural Poor in India?”, Oxford Development
Studies, 28,1, pp. 71-95.
7. Gaiha R. (2004) “Is there a case for Employment Guarantee Scheme in India?” downloaded from:
http://rspas.anu.edu.au/papers/asarc/2004_09.pdf
8. Gaiha R. & Imai K. (2005) “A Review of the Employment Guarantee Scheme in India” downloaded
from:
http://www.socialsciences.man.ac.uk/economics/utils/logs/ses.asp?info=noinfo&page=/economics/resea
rch/Discussion_paper_0513.pdf
9. Imai, K. (2005), “The Employment Guarantee Scheme as a Social Safety Net-Poverty Dynamics and
Poverty Alleviation”. Paper downloaded from:
http://www.economics.ox.ac.uk/Research/wp/pdf/paper149.pdf
10. Jadhav, V. (2006), “Role of Elite Politics in the Employment Guarantee Scheme”, Samaj Prabodhan
Patrika (Marathi Journal), April/June 2006.
11. Joshi A. (2005),” For effective employment guarantee” , downloaded from:
http://www.thehindu.com/2005/02/08/stories/2005020800861000.htm
12. National Rural Employment Guarantee Act (NREGA), 2005 downloaded from http://nrega.nic.in/
30
13. Nayyar, R. (2002), “The Contribution of Public Works and Other Labour-Based Infrastructure to
Poverty Alleviation: The Indian Experience”, Issues in Employment and Poverty, Discussion Paper 3,
International Labour Office, Geneva.
14. Pandey A.P. (2005) “The New Employment Guarantee Scheme – A Radical Deal for India’s Poor”
downloaded from: http://econpapers.repec.org/paper/wpawuwpgt/0511003.htm
15. Pellissery, S. (2005), “Local determinants of exclusion and Inclusion in rural public works programmes:
A political economy approach”, International Journal of Rural Management, Vol.1, 2, pp. 167-184.
 
NATIONAL RURAL EMPLOYMENT GUARANTEE
ACT (NREGA):
ISSUES, CHALLENGES AND POLICY OPTIONS

Second Annual Public Policy and Management Conference
April 12-14, 2007
Organised by
Center for Public Policy
Indian Institute of Management, Bangalore
Title of Paper: National Rural Employment Guarantee Act (NREGA):
Issues, Challenges and Policy Options

Abstract: Since Independence, employment-generation programmes in India have
been repeatedly re-designed to generate productive employment and additional income.
The Government of India, on February 2, 2006, launched the National Rural
Employment Guarantee Act (NREGA) in 200 most backward districts of the country in
the first phase, by clubbing together Sampoorna Grameen Rozgar Yojana and National
Food for Work Programme. The enactment of such an Act marks a paradigm shift from
the existing wage employment programmes and necessitates formulation of State-specific
Rural Employment Guarantee Schemes with a view to ensuring legal right to at least 100
days’ wage employment to the unemployed rural household. This would primarily be
achieved by taking up project-oriented activities covering works on water
conservation/harvesting, drought/flood control, plantation, land development, rural
connectivity, etc. This paper attempts to make a quick assessment of how NREGA has
been administered since its notification; the sustainability of its implementation having
regard to the financial and operational issues. Among the issues that would be important
in making the Act viable are promoting the involvement of Panchayati Raj Institutions
and converging the benefits of this employment-generating and infrastructure-building
initiative with various other ongoing rural development-oriented programmes aiming at
poverty alleviation, gainful employment generation and social security.
I. INTRODUCTION
Generation of adequate employment opportunities for the growing labour force in
India has been a matter of concern for the Indian planners since the launch of the First
Five Year Plan (1951-56). The dramatic technological breakthrough in agriculture in the
country by the ‘Green Revolution’1 of 1960s did not touch the employment quotient.
Since the Fifth Plan (1974-79) a growing need has been felt to address the problems of
unemployment and underemployment in rural/semi-urban areas and to ensure a minimum
livelihood to the poor and to pave the way for balanced regional growth.
2
Nearly three-fourths of India’s 1028 million people live in rural areas. More than 66
per cent of the country’s labour force is engaged in agriculture and allied activities. At least a
fourth of India’s population in 1999-2000 (260 million) was poor and lived below the
poverty line2. Unchecked population growth, shortage of land, fragmentation of land,
inequitable distribution of income and wealth in the country and burgeoning of casual or
unemployed labour force have all combined to increase rural poverty. Realising the
expedient association of casual wage labour and unemployment with poverty (Visaria,
1980), political parties through their manifestos and planners in their plan documents
have repeatedly emphasized the importance of creation of new avenues of employment
for the rural poor.
Limited impact of trickle down theory and Harrod-Domar approach to
development in India pressed the government to structure, implement and restructure
various poverty alleviation and employment-generation programmes. The plethora of
poverty alleviation programmes of the late 1980’s were more or less re-structured during
the 1990s. In 1999, the Government of India (GoI) clubbed together employment
generation programmes into four broad groups, viz. programmes for (a) self-employment,
(b) wage employment, (c) Area Development (like Drought Prone Area Programme and
Desert Development Programme), (d) Minimum Needs Programme (like Indira Awas
Yojana, Programmes on Sanitation etc.).
1.1 Employment Programmes
For alleviating rural poverty, the self-employment programme of Swarnjayanti Gram
Swarozgar Yojana (SGSY3) was launched all over India on April 1, 1999. It is a holistic
programme of micro-enterprises covering all aspects of self-employment. Its objective is
to bring the assisted poor families (Swarozgaris) above the poverty line by ensuring an
appreciable level of their income sustainable over a period of time.
With the objective of creating demand-driven village infrastructure including durable
assets, which would enable the rural poor to increase the opportunities for sustained
employment, the erstwhile programme of Jawahar Rozgar Yojana was re-structured and
streamlined as Jawahar Gram Samridhi Yojana (JGSY) on April 1, 1999. The secondary
3
objective of JGSY was the generation of supplementary employment and improvement of the
quality of life of the rural poor.
Another programme, Employment Assurance Scheme (EAS), was launched on
October 2, 1993 in 1,778 identified backward blocks4 in the drought-prone, desert, tribal and
hilly areas of the country. Later, the scheme was extended to the remaining blocks in a
phased manner. The primary objective of EAS was to provide gainful employment, during
the lean agricultural season, in manual work to all able-bodied adults in rural areas who were
in need of work. The work could be on farm, on other allied operations or on the normal
plan/non-plan works during such a period. The secondary objective was the creation of
community, social and economic assets for sustained employment and development.
These two programmes of JGSY and EAS were reviewed and clubbed together
under the umbrella programme of Sampoorna Grameen Rozgar Yojana (SGRY) on April
1, 2002. Further, the erstwhile ongoing programmes of SGRY and National Food for
Work Programme (NFFWP)5 got subsumed under National Rural Employment
Guarantee Act (NREGA) which was launched on February 2, 2006.
1.2 Poverty and Unemployment in India
Incidence of poverty is estimated by the Planning Commission, GoI on the basis
of the large-scale quinquennial sample surveys on household consumer expenditure
conducted by the National Sample Survey Organisation (NSSO). According to the latest
estimates6, at the national level, the incidence of poverty on the Head Count Ratio
declined from 44.48 per cent in 1983 to 26.10 per cent in 1999-2000 (Table 1).
Table 1: Incidence of Poverty and Number of People Living
Below the Poverty Line in India
Rural Urban Combined
Year
No. of
persons
(in
million)
% of
persons
No. of
persons
(in
million)
% of
persons
No. of
persons
(in
million)
% of
persons
1 2 3 4 5 6 7
1983-84 251.96 45.65 70.94 40.79 322.90 44.48
1993-94 244.03 37.27 76.34 32.36 320.37 35.97
1999-2000 193.24 27.09 67.01 23.62 260.25 26.10
Source: Planning Commission, Government of India
4
The three-pronged strategy of GoI to address the multi-dimensional nature of
poverty includes three broad components: economic growth, promotion of human
development and targeted programmes of poverty alleviation. Though the schemes have
had a favourable impact on the country’s poverty, there is need to reach the benefits fully
to the relatively less privileged classes of the society. There has been a progressive
increase in the concentration of income, wealth and economic power of neo-rich in rural
India. Besides, NSSO’s 60th Round Survey (2004) points out a large rural-urban and
male-female divide in literacy level, employment and wages (Table 2).
Table 2: Literacy and Unemployment Rates, 2004
(Figures in per cent)
Status Rural Urban
1 2 3 4 5 6 7
I. Unemployment Male Female Total Male Female Total
1. Usual-principal status 24 22 23 46 89 53
2. Current weekly status 47 45 46 57 90 64
3. Current daily status 90 93 91 81 117 88
II. Literacy 71.4 46.7 59.4 86.7 73.2 80.3
Source: Results of NSSO’s 60th Round Survey as reproduced in Economic Survey, 2005-06
It may be observed that the current daily status unemployment rates were much
higher than those of usual status, implying a high degree of intermittent unemployment.
This is mainly because of the absence of regular employment for many workers. The
rural literacy rate was much below the urban rate.
The 60th Round of NSSO has also revealed that about 72 per cent of households
belonged to rural India, accounting for nearly 75 per cent of total population. The
average household size for the rural sector at 5.0 is higher than the urban average of 4.5.
In this backdrop, launching an employment guarantee Act and considering employability
to be a legal right may have considerable economic, social and political significance. The
State-specific Rural Employment Guarantee Schemes (REGS), a consequence of the
NREGA, are expected to work towards relieving rural households of poverty and hunger
by ensuring employment, income and livelihood support. This would also restrict ruralurban
migration. The results may be better if the schemes are fully coordinated by the
government agencies with the help of Panchayati Raj Institutions (PRIs). The village
community has to evolve its own development plan through meticulous mapping of local
5
resources and fixing its own priorities for taking up certain development activities.
Further, this Act will work towards ensuring empowerment of women as it is expected
that one-third of labourers would be women.
An analysis of data on work participation rate7 in the country shows that the rural
main work8 participation rate for both sexes has registered a decline between 1991 and
2001 (Census 2001). While the main work participation rate for women declined
marginally, the decline was relatively steep in case of rural male workers. However, the
marginal work participation for both male and female in rural areas registered a
considerable increase during the same period (Table 3).
Table 3: Rural Work Participation Rate
1981 1991 2001 Category Main Marginal Main Marginal Main Marginal
1 2 3 4 5 6 7
Male 52.61 1.16 51.88 0.70 44.31 7.79
Female 16.09 6.97 18.75 8.04 16.65 14.14
Note: Work Participation Rates have been calculated relative to all ages
Source: Census of India, 1981, 1991 & 2001 and Mitra (2005)
The low work participation rates could be ascribed to the non-availability of
employment opportunities and the necessary investment needed for job avenues in rural
sectors. NREGA, in this context, is expected to have the potential of creating job
opportunities at the grass-root level and remove such demand side rigidities from the
rural scenario.
A high rate of unemployment in rural areas causes migration to urban areas and
the consequent increase in the number of slums in metropolitan cities and other big cities.
The Census, 2001 indicates that at the national level 4.39 per cent of the population is
unemployed9. The proportion is highest at 10.04 per cent for the young job seekers in 15-
39 age group. The proportion of unemployed females is higher than unemployed men in
all age groups in both rural and urban areas. At the national level, 28 per cent of the main
workers and 7.2 per cent of non-workers are reported to be seeking work (Census, 2001).
Keeping these facts in mind, the Eleventh Plan targets at providing employment to 70
million people by 2011-12.
6
Table 4: Proportion of Unemployed and Proportion of Marginal Workers
and Non-Workers Seeking/Available for Work, India 2001
Proportion of Marginal Workers (MW) and
Non-Workers (NW) Seeking/Available for Work Proportion of
Unemployed
Rural Total
Category
Rural Total MW NW MW NW
1 2 3 4 5 6 7
Male 3.12 4.01 43.3 6.52 44.51 8.30
Female 3.71 4.80 16.8 5.36 17.30 6.45
Total 3.41 4.39 26.56 5.85 27.93 7.21
Note: Proportion Unemployed and Seeking/Available for Work have been calculated for all age groups
Source: Census of India, 2001
The proportion of unemployed amongst rural females was marginally higher than
amongst rural males in 2001 (Table 4). However, the proportion of male marginal
workers was around three times that of females. The proportion of male non-workers at
6.52 was slightly higher than that of female non-workers at 5.36. A similar trend was
observed in total marginal workers and non-workers.
In such a milieu, GoI notified the NREGA on September 7, 2005 as per the advice
of the National Advisory Council. The Act was implemented with effect from February
2, 2006. The Act aims at providing livelihood security in rural areas by ensuring a legal
guarantee of at least 100 days of wage employment in a financial year to every household
whose adult members are willing to provide unskilled manual labour at the minimum
wage rate.
The Planning Commission was given the task of identifying some backward
districts which needed direct and immediate government intervention towards the
removal of their backwardness through this Act. Accordingly, 200 districts were decided
to be covered initially. The Act will be extended to all other districts within the next five
years.
Drawing upon the provisions made in NREGA, this paper reviews the
implementation of the Act in a few States of the country and tries to address the
following issues:
(a) What is the trend in the utilization of funds and implementation of the Act?
(b) Whether the desired investment under the Act is feasible?
7
(c) Whether the managerial hierarchy would be able to implement the Act
successfully?
(d) Can the grass-root level democratic institutions ensure effective implementation
of the Act?
The following section presents a brief review of NREGA, its salient features,
objectives and management system inbuilt in it. Section III analyses the progress of
implementation of the Act in a few States, discusses issues and challenges and explores
policy options. Section IV concludes with the optimism that the Act would be successful
in achieving its objective of generating sustainable employment and income to rural poor
only when a synchronized approach is made to dovetail this Act with various other
ongoing rural developmental programmes.
II. NATIONAL RURAL EMPLOYMENT GUARANTEE
ACT
The enactment of NREGA and its implementation triggered off a debate on the
potential benefits of the Act. The implementation of the Act, which entails the historic
step of providing a legal right to work, relies heavily on the three-tier Panchayat
institutions. The PRIs are responsible for processing the registration of job seekers,
issuance of job cards and receipts of applications for employment, allotment of jobs,
identification of work site, planning, allocation and execution of works, payment of
wages and above all providing social audit, transparency and accountability at the grassroot
level.
2.1 Salient Features of NREGA
&#56256;&#56510; NREGA promises wage employment to every rural household, in which adult
members volunteer to do unskilled manual work.
&#56256;&#56510; Any adult applying for work under NREGA will be employed on public works
within 15 days of receiving his/her application.
8
&#56256;&#56510; If the Government fails to provide employment to the applicant within 15 days, it
will pay a daily cash allowance at the rate of 1/4th of the minimum wages for the
first 30 days and at the rate of half of the minimum wages for the subsequent days
of the financial year.
&#56256;&#56510; The Act also provides for ex-gratia payment of Rs 25,000 in case of death or
disability, timely payment of wages (i.e. not later than a fortnight) and engaging
women numbering not less than 1/3rd of the total beneficiaries.
&#56256;&#56510; Statutory minimum wage rates for agricultural workers fixed by the respective
State Governments would be applicable. Wage rates are not to be below Rs. 60
per man day.
&#56256;&#56510; Wages may be paid wholly in cash or partly in kind. However, at least 25 per
cent of the wages should be paid in cash. Provision has to be made, under the
rules of the State, for payment of part of the cash wages on a daily basis to the
labourers.
&#56256;&#56510; The Act envisages alleviating poverty by assuring at least 100 days' employment
to the needy job-seeker in a financial year.
&#56256;&#56510; The State-specific REGS, prepared on the basis of the Act, has a legal sanctity
and places an enforceable commitment on the implementing machinery i.e. State
Governments and provides a bargaining power to the labourers.
&#56256;&#56510; State Governments are to designate a District Programme Coordinator (DPC) who
will be either the Chief Executive Officer of the District Panchayat or the
Collector of the District, or any other district level officer of equivalent rank to
monitor the implementation of REGS.
&#56256;&#56510; State Governments are to appoint a Programme Officer (PO) (of the rank of
BDO) exclusively for administering the scheme in the designated area. The PO
would be responsible to the DPC.
&#56256;&#56510; The Centre is to meet the salary cost of the POs and supporting staff.
&#56256;&#56510; Block Programme Coordinators are to assist PRIs. The principal role of
Panchayats at all levels would be planning, implementation and monitoring
REGS.
9
&#56256;&#56510; At the village level, the Gram Sabha would recommend the works to be taken up
under REGS and would monitor the execution of works through social audit.
&#56256;&#56510; Gram Panchayats would register the household, issue job cards to the prospective
applicants, register demand for work and provide employment opportunities to the
needy within 15 days.
2.2 Objectives of NREGA
The objectives of NREGA are:
&#56256;&#56510; To enhance the livelihood security of the rural poor by generating wage
employment opportunities in works that develop the infrastructure base of that
particular locality.
&#56256;&#56510; To suggest such activities which can address the causes of chronic poverty like
drought, deforestation and soil erosion.
&#56256;&#56510; To rejuvenate the natural resource base of the area concerned.
&#56256;&#56510; To create a rural asset base which would enhance productive ways of selfemployment,
augment and sustain rural household income.
&#56256;&#56510; To stimulate the local economy enabling those who are willing to work for wage
employment.
&#56256;&#56510; Ensure empowerment to women.
2.2 Implementation Mechanism
The following exhibit describes the key managerial functionaries that are
responsible for the effective implementation of the Act.
10
Exhibit I: Managerial Hierarchy for NREGA Implementation
The approach (Exhibit 1) adopted in NREGS is expected to ensure that the
demand for employment is met on time, workers receive their due entitlements and
National Level: Central Employment Guarantee Council (CEGC)
o Over-all Supervision
State Level: State Employment Guarantee Council (SEGC)
Employment Guarantee Commissioner as Member Secretary
o ensures activities are performed as per the guidelines
o functions as appellate body against decisions of DPC and for
grievance redressal
District Level: District Panchayat (DP)
District Programme Co-ordinator (Collector or Chief Executive Officer)
o Finalises district plans, monitors, supervises implementation
o Allocate and executes work among the 50% not executed by
GPs
Other Implementing Agencies
o SHGs
o Line Departments
o NGOs
o Central & State Government
Block Level: Intermediate Panchayat (IP)
Programme Officer
o Scrutinises village plans, ensures funds to GPs
o Matches employment opportunities with the demand for work
at the block level, guarantees unemployment allowance
o Supervises implementing agencies
o Safeguards interest of NREGA workers
o Ensures social audits
o Responds to complaints
Village Level: Gram Panchayat & Gram Sabha
Gram Rozgar Sevak (Village Employment Guarantee Assistant)
o Plans works
o Registers households, issues job cards, receives application for works
o Executes 50% of the works, allocating employment, maintenance of records
o Monitors and implements / social auditing
o Provides worksite facilities
Management and
Information System
(MIS)
(Mapping & gauging
performance,
developing
performance
indicators, ensuring
transparency &
accountability)
11
The approach (Exhibit 1) in the execution of the Act at the grass-root level is
expected to ensure timely meeting of the demand for employment, payment of
entitlements due and existence of proper planning, monitoring, and supervision.
III. STATUS OF IMPLEMENTATION OF NREGA
In this section the status of implementation of NREGA has been reviewed. The
analysis is limited to the States for which data is available. Expenditure as a percentage
of total available funds ranges between 2.7 and 75 per cent across States (Table 5(A)).
While as many as 3 States showed very low expenditure (below 20 per cent) till
December 20, 2006, the States of Madhya Pradesh and Punjab indicate percentage
utilisation of available funds at 67 and 75 per cent, respectively. Job cards issued against
the applications registered work out to at least 85 per cent of such applications in 11 out
of 14 States covered by our study. The corresponding figures for Andhra Pradesh,
Gujarat and Haryana were cent per cent. The State-wise details of the physical and
financial performance of NREGA are given in Annex I-III.
Employment demanded as a percentage of job cards issued recorded a skewed
figure; the range being 7.8 per cent in Maharashtra to cent per cent in the States of
Punjab. In 11 out of 14 States the same was below 50 per cent. The gap between the
number of job cards issued and employment demanded could be due to lack of awareness
that mere registration of application or the issuance of a job card does not ensure
unemployment benefits to the job-seeker. Job-seekers may not be aware that after
registration they have to demand employment. They may be under the impression that
after registration, they would get unemployment allowance by sitting at home. As per a
study (Mahipal, 2006) Sarpanches and Panchayat secretaries hardly ever inform the jobseekers
about the availability of jobs or about the benefits they are entitled to, due to
scarcity of funds with them. Besides, for a poor job-seeker, the procedure of demanding
employment entails complications. Job seekers tend to get attracted to work which offer
better wage rates than the minimum wage rate. The States of Haryana, Andhra Pradesh
and Gujarat have been able to provide full employment vis-à-vis the demand, although
12
the demand for employment as a percentage of job cards issued is not more than 36 per
cent in any of these 3 States.
Table 5(A): Physical and Financial Performance under NREGA
(As on December 20, 2006)
States %
Expenditure
to Total
Available
Fund
% Job
Cards
Issued to
Applicants
Registered
%
Employment
Demanded
(Rural
Households)
to Job Cards
Issued
%
Employment
Provided to
Employment
Demanded
(Rural
Households)
1 2 3 4 5
Andhra Pradesh (13) 23.42 100.00 35.30 100.00
Gujarat (6) 34.40 100.00 16.39 100.00
Haryana (2) 53.34 100.00 31.59 100.00
Himachal Pradesh (2) 41.72 94.67 47.65 93.71
Jammu & Kashmir (3) 14.53 85.20 - -
Karnataka (5) 40.12 90.40 38.75 97.52
Kerala (2) 5.43 5.27 32.23 97.30
Madhya Pradesh (18) 66.81 99.06 45.18 100.83
Maharashtra (12) 2.72 80.68 7.75 100.00
Punjab (1) 75.33 92.60 100.00 82.29
Rajasthan (6) 52.43 99.91 62.12 100.00
Tamil Nadu (6) 24.14 97.70 22.90 100.00
Uttaranchal (3) 22.22 67.69 20.95 99.64
Uttar Pradesh (22) 42.42 98.35 50.34 93.76
Note: Figures in parentheses indicate the number of districts in which NREGA has been implemented
Source: Ministry of Rural Development, Government of India
From the information available on the category-wise expenses under NREGA in 7
States, it is seen that majority of the States have spent their funds on the types of work
permissible under the Act (Table 5(B)). The expenses on semi-skilled labour are treated
as expenditure on material, which NREGA mandates should not be more than 40 per cent
of the total expenditure. Most of the States’ expenditure on material, inclusive of costs of
semi-skilled labour, is well within this cut-off. Under the Act, the ratio of expenses on
unskilled wages to other expenses should ideally be not less than 1.5:1.00 (i.e., 60:40).
13
This ratio is less than the desired minimum in Tamil Nadu. It is more than 1.5 for the
other States; being as high as 4.17:1.00 in Andhra Pradesh.
Table 5(B): Physical and Financial Performance under NREGA
(As on October 9, 2006)
States % permissible
work to total
works
Ratio of expenses
on unskilled wage
to others
% expenses on
material to total
1 2 3 4
Andhra Pradesh 79.17 4.17:1.00 19.36
Gujarat 94.18 1.70:1.00 37.10
Karnataka 69.10 1.53:1.00 39.55
Kerala 0.00 0.00:1.00 0.00
Madhya Pradesh 90.74 1.81:1.00 35.61
Maharashtra 0.00 --- 0.00
Tamil Nadu 73.87 1.21:1.00 45.33
Source: Ministry of Rural Development, Government of India
While the performance of NREGA during the initial few months of its
implementation shows mixed results, a lot more needs to be done if the objectives are to
be met, considering the results of the latest NSSO survey (61st Round, 2006) covering
2004-05, which reveal that wage employment in agriculture has been falling sharply.
The issues and challenges facing the successful implementation of the Act, as elaborated
in the following paragraphs, are daunting.
3.1 Empowerment of Women in Gram Panchayat
Women’s contribution to the economy, through remunerated and nonremunerated
work at home, cannot be over-emphasised. However, in spite of the
constitutional guarantee of equal rights and the provision of reservation for women in
grass-root level democracy vide 73rd Constitutional Amendment, various factors like
under-representation in political party nominations, lack of family support and inflexible
social and cultural restraints limit women’s mobility and deter their participation in the
grass-root level political process (Prasad & Haranath, 2004). Studies are replete with
instances where power has still not been vested with the elected women gram panchayat
functionaries. Instead, a new class of “Sarpanch Patis” have emerged where husbands of
the women sarpanches manage the affairs of the panchayat, while the women act only as
rubber stamps (Mathew, 2003).
14
Further, findings of a visit to Narnaul and Kanina blocks of Mahindergarh, one of
the two districts of Haryana where NREGA is currently under implementation, by the
authors in November 2006, reveal that the objective of NREGA to empower women at
grass-root level is still to be fully appreciated. The fifteen women Pradhans/Sarpanches,
who were interviewed, were aware neither of the operational procedures of NREGA nor
of its benefits. Registration and preparation of job cards were done by the male head of
the Sarpanch family. Many job cards had been lying with the Sarpanch family for
issuance for the past six months. The women living below the poverty line, when
interviewed, expressed their ignorance about the scheme. They had not attended even
one Gram Sabha till date. This raises serious doubts not only about the fulfilment of the
Act’s objective of women empowerment in a time-bound manner but also about ensuring
effective social audits in such regions.
3.2 Designing the Types of Work under NREGA
NREGA envisages fixing priorities of activities while providing a basic
employment guarantee in rural areas. It is mandatory under NREGA to formulate action
plans and perspective plans prior to implementation. As per Schedule – I of NREGA, the
focus of the Act should be on activities related to water conservation, water harvesting,
flood and drought proofing, irrigation, land development and rural road connectivity.
Therefore, an active involvement of State and National level experts like engineers,
architect and planners is a must in identifying land masses needing proper management,
arriving at topographic specificities, effective flood and drought proofing methods and
disaster management measures. Since there is an essential need for an integrated
management of flood and drought forecasting services in India, providing an agency of
experts in this field under the Act could ensure sustainability of activities and
optimisation of the resource utilisation at the grass-root level (Adhikari et al, 2000).
3.3 Wages for employment – is it sufficient and sustainable?
NREGA seeks to provide each person working under the Act, the level of wages
fixed by the State Government for agricultural labourers under the Minimum Wages Act,
1948. The Minimum Wages Act states that wages paid to labourers shall not be less than
the minimum wage rate fixed/notified by the States concerned. The Act also stipulates
15
that the statutory minimum wage rates to be applicable under the NREGA should not be
below Rs. 60 per person-day. This creates an apprehension that this stipulation may
undermine the very purpose of the Act.
For all the States, the minimum wages have been fixed at about Rs 60 per day per
person. However, there is a huge variation in the statutory minimum wage rates
prevailing across States (Table 6). Consequent upon the implementation of the NREGA,
the States started revising wage rates upward. The pre-NREGA wage rate was highest in
Kerala (Rs. 91) and lowest in Meghalaya (Rs. 26). In the post-NREGA period, States renotified
their minimum wage rates. Out of the 10 States under reference, Maharashtra
had the lowest wage rate (Rs. 47) and Kerala had the highest rate (Rs. 125). Thus fixing
up of Rs. 60 to be paid towards a day’s manual labour under the Act may create ground
level implementation problems.
Table 6: Minimum Wages in States
Rate (Rs./day) Sl. No. States
Pre-NREGA Post-NREGA
1 2 3 4
1 Andhra Pradesh 80 80
2 Assam 46 62
3 Bihar 59 68
4 Haryana 80 95
5 Kerala 91 125
6 Maharashtra 45 47
7 Meghalaya 26 70
8 Orissa 51.5 55
9 Uttar Pradesh 58 58
10 West Bengal 62 67
All States
(Population-weighted average)
59 NA
Source: Ministry of Labour, Government of India and Jain, L. C
Further, the minimum wage rates as notified by the State Governments are not
regularly adjusted to the State-specific price levels. This renders the governmentdetermined
minimum wage rate ineffective as a standard. Besides, the market wage rate
is invariably much higher than the minimum wage rates (for instance, the prevailing
minimum market wage rate in Haryana is Rs. 110 and the government stipulated
16
minimum wage rate is only Rs. 80). With depressingly low rates of wages, even
unemployed labourers may be reluctant to work under REGS.
The Concurrent Evaluation Report of GoI (2004) revealed that average
employment per beneficiary during the year 2002-03 was only 28.81 days. An average
beneficiary annually received between Rs. 893.00 and Rs. 1,860 as wages in a year which
is in no way sufficient to provide a decent economic and food security to a person to
come out of the poverty trap. A nation-wide study on SGRY in 12 States during 2003-04
revealed that on an average, the sample workers got only 36 days of employment in a
year from SGRY. The highest number of man-days generated was in Bihar (66 days) and
the lowest number of man-days was in Rajasthan (18 days); (Rangacharyulu, 2006).
Various studies conducted by Programme Evaluation Organisation of Planning
Commission highlighted that earlier wage employment programmes could generate wage
employment ranging from 16 to 29 man-days in a financial year to a rural household
(MoRD, 2006).
Under NREGA efforts are made to alleviate poverty in a sustainable manner by
ensuring wage employment and creating durable productive community assets.
However, various evaluations have applauded the effectiveness of Maharashtra
Employment Guarantee Scheme (MEGS)10 as a short-term safety net, but have criticised
its limited developmental impact, despite the rural infrastructure created by the MEGS
projects (Arora, 2005). To fight this challenge, efforts have to be made not only to
include poor destitute and needy persons at the village level but also to create such assets
which would be sufficient to meet the livelihood needs of the poor by enhancing their
income and quality of life.
3.4 Participation of People and Self-Government Organisation
NREGA envisages an active participation of the three-tier self-government by
involving more than 2.5 lakh village Panchayats, 5,000 intermediary Panchayats at
block/taluk level and over 500 district level Zilla Parishads. The implementing
mechanism under NREGA advocates free participation to democratically discuss local
issues and problems, identify the ways and means for their resolution and demand such
facilities which could improve the quality of life of the village community at large.
17
Review of the existing infrastructure and the need for their expansion would make
the current initiatives under the Act demand-driven. Preparation of action plan/
perspective plan under the Act requires energetic involvement of the various levels of
self-governments. Although this seems plausible, the ground level social, political and
economic equations in rural areas may result in conflicts of interest amongst various
stakeholders. This would invariably deter the progress of the planning of activities and
their successful execution under REGS of respective States.
3.5 Monitoring and Information System (MIS)
Undeniably, the take-off of an Act on such a grand scale in a country like India
and its sustainable and successful management depends largely on active participation
and dynamic involvement of government agencies, village communities and NGOs.
Starting from identification of activities under the Act to planning and implementation at
the grass-root level, the inbuilt integrated approach for monitoring, supervision and
information dissemination system should be in place. Sustained community participation
can be ensured only when adequate tangible benefits due to positive externalities of
NREGA percolate down and reach the poor (Singhal, 2004).
The provision of Monitoring and Information System (MIS) under the Act would
ensure the tracking of utilisation of funds and monitoring the physical and financial
progress to bring in transparency and fixing accountability at a proper level. MIS is all
the more important in the backdrop of reported cases of proxy wage earners where people
with permanent jobs have registered themselves as job-seekers, making hired labourers
work for them at half the actual wages (The Hindu, 25.11.2006). All stake-holders need
to be sensitised and made aware of the provisions and benefits of the Act to play their
designated roles which not only ensure efficient programme delivery at grass-root level,
but also pave the way for reconstruction and rejuvenation of real Bharat which lives in
villages.
3.6 Convergence: the Need of the Hour?
Land and watershed development, water conservation, flood and drought proofing
activities promise to contribute greatly to the economic and ecological development of
18
rural areas, particularly in drought-prone and dry land areas. However, before the
extension of NREGA to the hitherto untried districts, efforts should be made to determine
the priorities of permissible activities designed for creating durable community assets at
the village level. The selection of drought and flood proofing projects may not result in
adequate benefit everywhere. Thus, the objective of asset creation should take into
account local needs and priorities. Further, construction of assets like irrigation, flood
protection, water conservation etc., should tap the funds budgeted by sectoral
departments of the States concerned. There is need to merge NREGA with State sector
or other schemes and converge with different rural development programmes.
3.7 Human Resources
Several evaluation studies of the performance of SGRY in India have indicated
that there was an acute shortage of staff at the Panchayat level and the available staff was
neither experienced nor aware of the Act’s operational aspects. Due to the severe
scarcity of trained, technical and non-technical staff, the records of receipt and
disbursement of food grains and cash payments towards wages were not maintained
properly at Panchayat level.
Though the NREGA provides for expenses out of its fund towards recruitment of
key officials at all levels from Gram Panchayat to District and State level, it is not sure
whether appropriate action would be initiated by the implementing States in this regard.
The regional performance review committee of the Ministry of Rural Development found
that as many as 13 States had not recruited key implementing officials like POs,
supporting staff, Panchayat assistants and technical staff even after 8 months of the Act’s
notification (MoRD, 2006).
3.8 Transparency and Accountability
Inability of the earlier employment guarantee programmes to achieve their
objectives is generally attributed to the lack of political will and active involvement of
civil society and self-governments. For instance, the deficiencies of MEGS were
attributed to the misuse of the scheme by politicians and legislators to swindle public
19
funds through their clandestine and self-interest driven contracts and kick-backs
(Desarda, 2005). If true, the need of the hour is total transparency not only in the
formulation, planning and identification of activities under the Act but also in the
execution of the work. Achieving this transparency is not all that intimidating a task
specially because REGS under the Act would be probably the only scheme of the
implementing State where Right to Information (RTI) Act, 2005, is inbuilt.
Another critical factor in-built the framework of NREGA is that the public
delivery system has been made accountable, as it envisages tabling of an Annual Report
on the outcomes of the REGS before the Indian Parliament and Legislature of the States
concerned.
3.9 NREGA Implementation: Is it Feasible?
Around 90 per cent of the cost of the REGS in implementing States is to be
provided by the Central Government. Accordingly, the allocation for the Ministry of
Rural Development has been increased to Rs 24,000 crore in the Union Budget for 2005-
06. NREGA is estimated to cost about Rs 40,000 to 50,000 crore annually which is about
2 per cent of the country’s Gross Domestic Product.
To meet the total cost of the ambitious Act, States will still have to provide Rs
4,000 crore. The rest of the Rs. 12,000 crore (assuming the total cost works out to Rs
40,000 crore) might be raised from other schemes whose allocations may now be merged
into this scheme. The financing of employment guarantee is an enormous challenge for
the Central Government as India’s tax-GDP ratio is still quite low. This means that the
Government’s revenue sources are limited and shrinking. In this context, an optimistic
expenditure planning on NREGA may raise questions on the financial viability of the
REGS. Further, the share of 10 per cent decision to be provided by the State
Governments could add to the existing financial problems of some States.
The effective implementation of various components of the scheme calls for
active involvement of PRIs. The PRIs are the designated functionaries to operate at all
levels starting from registration of prospective job seekers, issuance of job cards, fund
20
flow, distribution of cash and food grains to the labourers and monitoring the status of
progress of the Act. There is no doubt that grass-root level institutions like PRIs are a
must for the effective implementation of the Act. In a democratic polity, there may be
need to have safeguards against political and personal considerations as political
affiliations of PRIs may create political and social divisions in the rural areas. Till now
their performance remains tardy and faulty in respect of the selection of beneficiaries and
distribution of benefits to the needy.
IV. SUGGESTIONS AND CONCLUDING REMARKS
NREGA, in spite of various inherent limitations, assures generation of
employment opportunity with food security in the identified rural areas. For the first
time, the rural poor have been legally provided the right to work and get benefits from
public works and infrastructure related activities. The following points may aid in the
effective implementation of the Act:
&#56256;&#56510; A well-equipped pragmatic approach is needed to launch any rural developmental
initiative. Proper monitoring by the village level agencies backed by the strength
of social audit may lead to accountability and transparency in the implementation
of NREGA.
&#56256;&#56510; NREGA can create huge infrastructure facility in rural areas which would help
not only in the immediate income and employment generation, but also in
supporting the future initiatives for ensuring income and employment to the needy
rural people. This should not be treated as a social safety network programme
alone, instead should be integrated in such a manner that it positively affects the
country’s economic growth by building large human and physical resource base
in the rural areas.
&#56256;&#56510; Studies conducted on wage employment programmes highlight the issue of non
preparation of annual action plans at the district level. To ensure the success of
the Act, future plans should be evolved in consultation with local university, lead
NGOs, district officials.
21
&#56256;&#56510; Training of officials and elected PRI members is a must as they are the
implementing agents of the Act at the grass-root level.
&#56256;&#56510; A review of the minimum wage rate fixed/modified under the Minimum Wages
Act has to be done keeping in view the variation in the rates across the States.
The concepts of the Act are novel and innovative though it continues to suffer
from age-old operational and functional rigidities. However, by promulgating the
NREGA, a legal sanctity has been bestowed upon employment seekers in rural areas.
Despite some misgivings about the financial feasibility of the Act, one has to acclaim the
conferring of a legal right to unemployment benefit on the poor rural people is a great
step forward in alleviating poverty. To allocate funds for the implementation of NREGA,
the government has to increase its revenue collection and open avenues for revenue
generation. This, coupled with the restriction on non-development expenditure, would
guarantee a smooth fund flow and ensure the much-needed transparency.
Further, efforts need to be undertaken to explore possibilities of convergence and
dovetailing with other similar programmes to derive maximum benefits for rural poor
households. For example, “Bharat Nirman” an infrastructure building programme
launched in rural areas has a budgetary support of more than Rs. 15,000 crore every year.
This programme has six vital infrastructure components viz., irrigation, roads, water
supply, housing, rural electrification and rural telecom connectivity and calls for
complete involvement of the grass-root level democratic institutions like PRIs. If these
programmes are dovetailed with NREGA, the initiatives of the Act would undoubtedly
give the rural economy a new shape by expanding and strengthening its existing
infrastructure and by creating additional infrastructural facilities in a transparent and
sustainable manner for effective utilisation by future generations.
Looking at the current momentum in the implementation of NREGA, it may be
expected that this endeavour, if properly executed, will enrich the rural economy and
narrow down the economic gap between urban and rural India. To make this expectation
a reality, a synchronized approach is needed to converge the benefits of this employment
generating and infrastructure-building initiative with various other development oriented
22
schemes already in operation in rural areas like, programmes for alleviating poverty,
generating gainful employment, ensuring social security, enhancing standards of health,
hygiene, sanitation and education.
The NREGA gives the rural people an opportunity to create effective and useful
economic assets in rural areas. Rural India has immense potential to absorb the willing
manual labourers as it needs construction and setting up of various labour-intensive
infrastructure facilities. Various labour-intensive public works could quite conceivably
include those for environment protection like watershed development, land regeneration,
prevention of soil erosion, restoration of tanks, protection of forests etc. An integration of
the NREGA and environment-friendly rural programmes should be quite feasible,
because of their coterminous nature. It has a huge potential for generating substantially
more rural funds and employment of hitherto unemployed rural labour force. Serious
thoughts and action are called for in this respect.
NREGA is expected to be implemented with complete supervision of PRIs. This
provides the States a golden opportunity to activate and empower their PRIs including
Gram Panchayats and Gram Sabhas. NREGA and RTI Act are two landmark legislations
in independent India. The former is expected to make a significant dent in the poverty
situation in rural areas. Its successful implementation requires active involvement of
people and a corruption-free and responsive administration. Transparency, accountability
and participation are the key pillars of REGS. For invoking RTI principles in checking
corruption and fixing responsibility and accountability under the REGS, it is expected
that the rural people will seek information regarding the fund allocation and utilization on
the identified activities under the scheme. The in-built provisions for social audit along
with appropriate and judicious use of RTI Act will not only ensure transparency and
accountability but also pave the way for all-round rural development.
(Comments and suggestions of Shri S. Bhattacharyya, Shri S. K. Ganguli, Shri R.C. Srinivasan, and Dr. N.
K. Sinha on the paper are acknowledged. The views expressed are personal.)
23
Notes
1. The first systematic attempt in the mid 1960s made by the Government of India to increase
agricultural production, particularly that of food grains, in the country through application of new
technology of cultivation and biochemical innovations including high yielding varieties, chemical
fertilizers and pesticides.
2. Poverty line in India is defined in terms of minimum needs and effective consumption demand,
viz. per capita daily intake of 2,400 calories in rural areas and 2,100 calories in urban areas.
3. SGSY clubbed together the erstwhile six self-employment programmes of Integrated Rural
Development Programme, Development of Women and Children in Rural Areas, Supply of
Improved Tools to Rural Artisans, Training of Rural Youth for Self-Employment, Ganga Kalyan
Yojana and Million Wells Scheme. The objectives of SGSY are to be achieved by inter-alia
organising the rural poor into SHGs through the process of social mobilisation, their training and
capacity building and provision of income-generating assets. This process aims at building the
self-confidence of the poor through community action, collective decision-making, fixing
priorities of their needs in relation to their meagre resources for improving their collective
bargaining power and empowering them socially and economically. SGSY tries to integrate
various agencies – District Rural Development Agencies, banks, line departments, Panchayat Raj
Institutions, non-governmental organisations and other semi-government organisations.
4. For development and cohesion amongst the people in a community, nearly 100 villages with
60,000 to 80,000 population have been grouped together to constitute a Block.
5. In fulfilment of the commitment made by the UPA Government under National Common
Minimum Programme, the NFFWP was launched in 150 identified districts of the country during
2004 pending the enactment of NREGA to create immediate additional employment opportunities
in the rural areas with food security.
6. Based on 55th Round of NSSO’s household consumer expenditure distribution.
7. The proportion of working persons to total population.
8. The usual principal status workers and the usual subsidiary status workers from NSSO are
comparable with the main workers and the marginal workers from census, respectively as the
definition and reference periods are almost the same.
9. Proportion of non-workers seeking or available for work to total population.
10. Implemented by Government of Maharashtra in 1979 vide Maharashtra Employment Guarantee
Act to provide work to agricultural labourers during lean agricultural season. Its mandate specifies
that the works should be so organised that they do not interfere with normal agricultural activities.
24
Annex I
Physical and Financial Performance under NREGS
(As on December 20, 2006)
States Total
Available
Funds (in
Lakh)
No. of
Applications
Registered
No. of Job
Cards
Issued
Demand for
Employment
(no. of
Households)
Employment
Provided
(no. of
Households)
Expenditure
(Rs. Lakh)
1 2 4 5 6 7 8
Andhra Pradesh (13) 93196.59 4380650 4380650 1546503 1546503 21825.94
Gujarat (6) 8695.2 611026 611026 100698 100698 2991.21
Haryana (2) 2178.51 87884 87884 28056 28056 1161.99
Himachal Pradesh (2) 2785.03 93016 88056 41960 39320 1161.9
Jammu & Kashmir (3) 3808.43 186811 159158 - - 553.53
Karnataka (5) 21342.56 670822 606436 235009 229185 8562.4
Kerala (2) 3350.69 227057 11958 3854 3750 182
Madhya Pradesh (18) 144227.87 4423536 4381801 1979844 1996375 96358.7
Maharashtra (12) 41627.2 3057951 2467037 191272 191272 1130.38
Punjab (1) 1501.18 40310 37326 37326 30715 1130.89
Rajasthan (6) 77417.3 1495048 1493628 927890 927890 40590.63
Tamil Nadu (6) 15946.91 1340307 1309462 299860 299860 3850.3
Uttaranchal (3) 5082.6 283132 191657 40153 40008 1129.42
Uttar Pradesh (22) 77450.41 3471356 3414000 1718544 1611342 32854.83
Note: Figures in parentheses indicate the number of districts in which NREGS has been implemented
Source: Ministry of Rural Development, Government of India
Annex II
Category-wise expenses under NREGA (in Rs. Lakh)
(As on October 9, 2006)
States On Unskilled
Wage
On Semi-skilled
Wage
On Material On Contingency Total
1 2 3 4 5 6
Andhra Pradesh 13335.93 33.67 101.04 3066.49 16537.13
Gujarat 1700.64 27.55 262.43 713.12 2703.74
Karnataka 2808.76 134.85 1572.28 130.27 4646.16
Kerala 0.00 0.00 0.00 0.00 0.00
Madhya Pradesh 53803.39 4931.22 24264.10 564.73 83563.44
Maharashtra 0.00 0.00 0.00 0.00 0.00
Tamil Nadu 373.00 0.00 4.55 304.76 682.30
Source: Ministry of Rural Development, Government of India
25
Annex III
Number of NREGA Works Undertaken
(As on October 9, 2006)
States Water
Conservation
Drought Proofing
& Plantation
Flood
Control
Rural
Connectivity
Others Total
1 2 3 4 5 6 7
Andhra Pradesh 37104 227 0 2 9823 47156
Gujarat 2085 83 9 620 173 2970
Karnataka 3042 553 441 1023 2262 7321
Kerala 0 0 0 0 0 0
Madhya Pradesh 75172 14391 1226 21110 11414 123313
Maharashtra 0 0 0 0 0 0
Tamil Nadu 873 0 34 218 398 1523
Source: Ministry of Rural Development, Government of India
26
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Implementing National Rural Employment Guarantee Act:
The Arunachal Pradesh Experience
Abstract
In this paper, we analyze the significance and criticality of implementation
process in the context of the National Rural Employment Guarantee Act (NREGA)
2005, through the case of its implementation in Upper Subansiri district of Arunachal
Pradesh. In writing this case on NREGA implementation, we focus on the variables
which structure the entire implementation process rather than attempting a detailed
description of the Act’s implementation in Arunachal Pradesh. In other word, this
case is an empirical analysis of the variables involved in the implementation process
of NREGA in a particular district. However, the larger objective is to highlight certain
key decision points that if paid attention to may improve the effectiveness of the Act’s
implementation in all the areas where it is being implemented currently. The case will
also identify certain inadequacies in the guidelines of the Act so as to facilitate the
process of modifications in these guidelines as and when it is initiated. The paper
concludes that the logic of the policy, level of coordination and inter-personal
cooperation, the commitment and motivation of stakeholders affect the
implementation outcomes.
The Context
The concern for improving the lot of rural poor is not new for Indian
policymaker. In a country of more than one billion people, where 70 per cent of the
population lives in rural areas, this concern is quite in accordance with the dynamics
of a democratic polity. A major component of this concern for eradicating rural
impoverishment has been the direct state intervention through targeted programmes of
poverty alleviation, in addition to the efforts made for accelerated economic growth
and provision of basic public services. However, with the increasing emphasis on
‘inclusive growth’ the employment generation programmes in labour-intensive sectors
and sub-sectors have assumed greater significance. During 1980-2002, nearly Rs.
40,000 crore was invested under self-employment programmes, and another Rs.
2
58,905 crore under wage employment programme in rural areas as part of the
centrally sponsored employment generation progrmmes. However, the dent these
programmes made on poverty is only modest and in most cases unsustainable
(Rajakutty, 2004). In a major study of rural development system in six states, it was
found that the strategy of providing employment in rural areas through wage as well
as self-employment schemes did not yield intended benefits due to several
management related problems pertaining to scheme design, delivery system and
implementation (Gupta, 2001). In addition to various context-specific barriers to
programme implementation, the process of task performance got constrained at
various levels by the absence of efforts for building institutions, initiating
organizational development (OD) interventions in existing agencies, and designing
new public service delivery mechanism.
In a recent review of wage employment programmes from the perspective of
administration, it has been highlighted that there were fundamental problems in both
the design and implementation of these programmes which adversely affected the
1
outcomes at the grass root level (GOI, 2nd ARC, 2006). Even in the case of
Maharastra Employment Guaranteed Scheme the problems of implementation
affected the outcomes, which can be characterized as a ‘modest impact on poverty and
unemployment reduction’.1 These studies have also indicated some of the lessons
from the ineffective implementation of public works programmes. The Second
Administrative Reforms Commission in its second report summarizes these lessons in
the form of many inadequacies in implementation process viz., inadequate planning
for assets, lack of people’s particiapation, limited role of Panchayats, lack of
capability among Panchayat functionaries, emphasis on physical targets, and leakages
and corruption. The message from many of these studies is that there is enormous
‘implementation deficit’ in the execution of these programmes. This message is of
great significance not only for policymakers but also for other stakeholders including
implementers, academics, civil society, media, and citizens at large, for it underscores
the crucial significance of implementation in the policy process and focuses the
analyst’s attention towards identifying the specific challenges in addressing the
problem of rural unemployment and underemployment.
In this paper, we analyze the significance and criticality of implementation
process in the context of the National Rural Employment Guarantee Act (NREGA)
2005, through the case of its implementation in Upper Subansiri district of Arunachal
Pradesh. In writing this case on NREGA implementation, we focus on the variables
which structure the entire implementation process rather than attempting a detailed
description of the Act’s implementation in Arunachal Pradesh. In other word, this
case is an empirical analysis of the variables involved in the implementation process
of NREGA in a particular district. However, the larger objective is to highlight certain
key decision points that if paid attention to may improve the effectiveness of the Act’s
implementation in all the areas where it is being implemented currently. The case will
also identify certain inadequacies in the guidelines of the Act so as to facilitate the
process of modifications in these guidelines as and when it is initiated.
The specific objectives of the paper are as follows:
1. To identify the initial conditions that affected the implementation of
NREGA in Upper Subansiri district of Arunachal Pradesh;
2
2. To explore the nature of local socio-economic conditions, politicoadministrative
factors, and public opinion that influenced the
implementation of the Act;
3. To analyze the nature of ‘implementation deficit’ from the point of
view of implementation prerequisites;
4. To suggest possible measures for improving the implementation of the
Act.
Conceptual Framework
It will be very naïve to assume that whatever policy has been formulated and
authorized will be put into practice by those made responsible for it. The perspective
of policy process requires that we follow how the policy is actually implemented on
the ground because the ‘adopted policies gain force through implementation.’ The
standard definition of the term implementation is: “To put into effect according to
some definite plan or procedure.” In this sense, implementation is a deliberate and
sequential set of activities directed toward putting a policy into effect, making it
occur. Within the public policy cycle, the context of implementation consists of
organized activities by government directed toward the achievement of goals and
objectives articulated in authorized policy statement (Hayes, 2002)
We adopt a “second-generation” framework of public policy implementation
developed by Paul Sabatier and Daniel Mazmanian to structure the analysis attempted
in this paper. This framework has been developed to explain the implementation of
regulatory public policy, but we are using it here in the context of a public
employment policy which has a social welfare objective apart from the goal of
creating durable community assets for improved productivity of land-based
occupations. This has been done essentially to highlight the statutory dimension of the
NREGA as different from programme formulation and implementation as a normal
executive function of the government at different level. As the Act is statutory in
nature, it has the force of a regulatory public policy ‘in which the government
agencies seek to alter the behaviour of specific target groups’ viz. state governments,
bureaucracy, PRIs, and self-targeting individuals seeking unskilled employment.
3
According to this framework, implementation is the carrying out of basic
policy decision, usually made in a statute (although also possible through important
executive orders or court decisions). Ideally, that decision identifies the problem(s) to
be addressed, stipulates the objective(s) to be pursued, and, in a variety of ways,
“structures” the implementation process. Further, the implementation process
normally runs through a number of stages namely, passage of the basic statute, policy
outputs and/or decisions of the implementing agencies, compliance of target groups
with those decisions, the actual impact – both intended and unintended – of those
decisions, the perceived impacts of agency decisions, and finally, important revision
in the basic statute (Sabatier and Mazmanian, 1980). The role of implementation
analysis in this framework is to identify the factors which affect the achievement of
statutory objectives throughout this entire process. These factors relate to three broad
categories:
• The tractability of the problem (s) being addressed by the statute;
• The ability of the statute to favourably structure the implementation
process; and
• The net effect of a variety of socio-political and psychological
variables on the balance of support for statutory objectives.
We combine this basic framework with what have been identified as general
factors affecting the success and failure of implementation: the logic of policy, the
nature of cooperation it requires, and the availability of skillful and committed people
to manage its implementation (Weimer and Vining, 2005). So, if some social
problems are much more easier to deal with than others through implementation of
adopted public policy, it is the logic of the policy, the inherent connection between
policy and intended outcomes, which determines the possible outcomes in both the
cases. If there is an absence of valid causal theory even in the case of simple problem,
the successful implementation will always be under question, affecting the actual
outcomes adversely. This will lead to the decline in political support to the statutory
objectives or modification of the statute itself. Obviously, a policy shall be treated
illogical if one cannot specify a plausible chain of behaviours that leads to desired
outcomes.
4
The statutory provisions have the capacity to structure the entire
implementation process through it selection of the implementing institutions; through
providing legal and financial resources to those institutions; through biasing the
probable policy orientations of agency officials; and through regulating the
opportunities for participation by non-agency actors in the implementation process
(Sabatier and Mazmanian, 1980). Thus, implementation is like an assembly process
involving efforts to secure essential elements from those who control them (Bardach,
1977). This metaphor suggests the generalization that more numerous and varied are
the elements that must be assembled, the greater is the potential for implementation
problems. The efforts to follow the statutory provisions or to secure the elements
needed for implementation would typically involve efforts to seek cooperation at
different levels. Therefore, a successful implementation would normally involve the
use of political strategies, especially co-optation and compromise. Typically, a
unsuccessful implementation would suffer from problems of noncompliance,
tokenism, delay or resistance. Further, employees with civil service protection, can
often slow, or even stop, implementation with halfhearted or leisurely contributions.
Their ability to adversely affect the implementation is enormous when they have to
provide feedback for the policy to be implemented over a longer period of time. For,
instance, management information system (MIS) may be sabotaged by the delays or
inattention to accuracy by the input data providers (Weimer, 1980).
Finally, several non-statutory variables would also act as intervening factors
influencing the implementation outcomes. The factors like, socio-economic condition,
media attention, public support, attitudes and resources of constituency groups,
support from the state, and commitment and leadership skills of implementing
officials. We feel that in the well conceived welfare programmes, the commitment
and leadership skill of implementing officials play a major role in making the
implementation process successful. So, the model developed here includes this as a
crucial non-statutory variable which affects the stages of implementation process.
The framework of Sabatier and Mazmanian as adopted for the purpose of this
study is shown below in Figure 1:
5
Figure 1
Flow Diagram of the Variables Involved in Implementation Process
NREGA and its Implementation
The Act represents a paradigm sift as it recognizes the need for employment as
a right. It is said that the NREGA is meant to empower ordinary people to demand
their constitutional right to work by placing a corresponding duty upon the State to
implement that right. Advocates of the Act claim that it is different from the existing
schemes by virtue of its legislative status, not making it prone to arbitrary
modification and revision. The statutory objective of the Act is, “…to provide for the
enhancement of livelihood security of the households in rural areas of the country by
providing at least one hundred days of guaranteed wage employment in every
financial year to every household whose adult members volunteer to do unskilled
Tractability of the Problem
(Logic of the Policy)
Ability of Statute to
Structure Implementation
(Nature of Cooperation)
Non-statutory Variables
Affecting Implementation
(Skillful and Committed People)
Stages (Dependent Variables) in the Implementation Process
- Policy outputs of implementing agencies
- Compliance with policy outputs by target groups
- Actual impact of policy outputs
- Perceived impacts of policy outputs
- Major revision in statute
6
manual work and for matters connected therewith or incidental thereto” (The Gazette
of India, 2005). The Act is thus an important step towards the realization of the right
to work mentioned in Article 41 of the Constitution of India as one of the directive
principles of state policy.
The real challenge of the Act lies in its implementation just like any public
policy which intends to achieve its statutory objective by regulating the behaviour of
all stakeholders. If it is not implemented effectively, the whole paradigm of
development, of which NREGA is a significant part, will fall into question (Sastry,
2006). The challenges for the successful implementation of NREGA stem from five
factors namely, (a) shift towards universalisation and entitlements, (b) funding by the
Union Government and execution by State Governments, (c) centrality of Local
Governments, (d) administrative and institutional arrangements, and (e) problems in
the backward areas (GOI, 2nd Administrative Reforms Commission, 2006). The
Commission has emphatically concluded in it second report that:
“…if successfully implemented, the Act can be the harbinger of
transformative changes in rural India. It would energize the rural economy by
providing assured employment and generating a large pool of durable assets to
promote sustainable growth. It would strength the process of decentralization and
enable participatory planning at the grassroots level. It would change the unequal
power structure in the rural areas of the country. But, then, NREGA should ideally
create conditions for its own demise. The litmus test for the success of NREGA would
be when its implementation, over a period of time so transforms rural India that the
poor would no longer need the assurance of guaranteed employment for securing their
livelihood.”
There can be no disagreement with the view that an effective implementation
of the Act will enhance rural people’s livelihood opportunities both by providing
guaranteed wage employment and creating durable assets that may help the villagers
to diversify their productive activities. At the same time, the Act is an explicit
indication of the policymakers’ intent to strengthen the Panchayats as institutions of
local self-governance at the grassroots level. However, in the very first meeting of the
Central Employment Guarantee Council, it is officially acknowledged that halfhearted
implementation is not allowing the Act to change the face of rural India (Jain,
2006). The major gaps that have been found in the implementation process are: lack
of awareness about the procedures for seeking job after registration; over-burdened
7
administrative functionaries at the panchayat, block and district levels; inadequate
provision for administrative expenses; and weak grievance redress procedures. In fact,
the problem that the adoption and implementation of this Act intends to solve has
been made quite intractable due to the absence of any causal relationship between
sequential activities which must be first implemented before the wage employment is
created. Thus, if there are very few work applications after the initial activity of
registration, it is clear that the inevitable middlemen or labour contractors have
become active even in this scheme, just the way they were active during the
implementation of EGS in Maharastra. This means the problem of rural livelihood
would never be affectively tackled in its totality and the scheme may be continued
indefinitely for the political master to reap the benefits of a ‘populist scheme.’
Similarly, if we look at the statutory provisions of the Act in relation to the
institutional mechanism for it implementation, it is plausible that the problems
identified in the implementation of earlier rural development scheme may be found in
the case of NREGA. For instance, lack of people’s particiapation in planning for
assets for the village at Gram Sabha level, lack of capability among Panchayat
functionaries, and the community power structure would most likely influence the
implementation process and the statutory provision may prove ineffective in changing
the behaviour of functionaries towards compliance. In the case of non-statutory
factors again, the policymakers should not expect a uniform pattern of implementation
for the simple region that variability in terms of socio-economic conditions, cultural
practices, demographic features, geographical locations, infrastructural development,
motivational levels of implementers and support from the state is very high leading to
a plausible skewed performance of the scheme from the point of view of achieving
objectives of the Act. Even if the apex agency assumes this variability as given, a
poor attention to pre-implementation trainings for capacity building at various levels
of the institutional mechanism may prove to be disastrous for meeting the goals at the
district level.
In fact, the preliminary results of implementation performance have started
appearing in the press as well as at the level of the Central Council of Employment
Guarantee. For the civil society organizations, which have vigorously taken the task
of monitoring the performance of public bureaucracy involved in the execution of the
8
Act, implementation in several districts is marred by crucial faults. In the surveys
conducted by various organizations, it has been indicated that the PRIs, the nodal
bodies under the Act, have not yet been empowered as per the guidelines of the Act. It
has been noticed that a political intervention at the local level is taking a toll on the
authority of PRIs. The problem lay in the conflict between the political parties which
want to take control of decisions at the panchayat level and so influence their electoral
prospects. Therefore, only those panachayats, which work for political objectives of
the ruling party, have been provided the funds under the scheme. Also, the objective
of creating local assets under the Act is not being adhered to, thus limiting its impact
on local development (CSE, 2006). The field data reveal that onus of responsibilities
of implementations has shifted from PRIs to individuals in Panchayats. Chairpersons
of Village Panchayats, Panchayat Secretaries and BDOs are repeatedly referred faces
and positions in implementation process. This clearly indicates that ordinary members
of Panchayat either don’t show interests or have been deliberately sidelined by
implementation machinery of NREGA. This isolation has its visible impact on
community participation in NREGA processes (PRIA, 2006), leading to the neglect of
collective gains from the choice of works carried out under the scheme. As a
consequence, the works that have been undertaken to implement NREGA in an area
do not necessarily reflect priorities of Gram Sabhas in that area. The shortage of
dedicated staff for executing various provisions of the Act at all levels of the
implementation machinery is causing inadequacies as the over-burdened officials find
it difficult to pay due attention to exclusive provisions of the Act. This is causing the
disruption of the whole sequence of activities that must proceed before the work is
allotted and the wages are paid to the workers.
This study by PRIA further shows that significant percentage of households in
the sample is not aware of the provision that one has to formally demand work under
REGS, after getting the job card. People think that once any body receives job card,
s/he is automatically provided employment or unemployment allowances as a right
under NREGA. This lack of awareness among respondents has percolated to
confusion level. In Mahendragarh district of Haryana, for example, the NREGA is
popularly called Bhattaewali Yojana (a scheme for allowances). In Uttar Pradesh
State Government has recently initiated a scheme under which educated employed are
provided (honoured) unemployment allowances, mostly in state sponsored events for
9
this purpose. In three districts of UP, where this sample survey was undertaken,
people draw interesting comparisons between the NREGA and the State’s Berozgari
Bhatta (unemployment allowances to educated unemployed) Scheme. They say,
“There are two schemes: one for unemployment allowances to educated ones (UP
Government Sponsored) and other for unemployment allowances to uneducated ones
(Central Government sponsored- REGS)” (PRIA, 2006).
Several issues pertaining to the implementation inadequacies vis-à-vis the
statutory objectives and implementation principles mentioned in the Act can be
identified for further exploration and analysis. The Table 1 below summarizes these
issues:
Table 1
Summary of Statutory Objectives, Implementation Principles and Issues
Involved
Statutory Objectives Implementation
Principles
Issues/Remarks
- Enhancing livelihood security
in rural areas by providing at
least 100 days of guaranteed
wage employment in a
financial year to every
household whose adult
members volunteer to do
unskilled manual work;
- Generating productive assets;
- Protecting the environment;
- Empowering rural women;
- Reducing rural-urban
migration;
- Fostering social equity.
- Collaborative
Partnership and
Public
Accountability
- Community
Participation,
- Centrality of
Panchayats,
- District
Programme
Coordinator and
Programme
Officer,
- Coordination
among agencies,
- Resource
support
- Intergovernmental
accountability
- Institutional
mechanism of
participation
- Devolution of powers
of decision making
- Information
dissemination and
awareness creation
- Trainings and
capacity-building
- Fund utilization and
fund flow
- Redress of grievances
- Concurrent monitoring
- Outcome evaluation
- Modification of
schemes
10
The Arunachal Pradesh Experience
Arunachal Pradesh is a northeastern state of India that provides the
public policy analyst a unique socio-cultural and economic context to study the
dynamics of policy processes and relate them with the achievement of development
intervention in the post-independence India. From the point of view of rural
development, three most important initiatives that were taken at a very early stage of
development intervention are: (i) introduction of Community Development
Blocks/National Extension Service; (ii) creating Panchayat Raj institutions at the
villager, anchal and district levels; and (iii) launching of cooperative movement for
meeting consumer needs. There is no denying the fact that after the initiation of
development intervention in the State, almost all indigenous communities2, which
have very distinct linguistic, ethnic, and cultural characteristics, are now experiencing
changes in terms of (i) knowledge and skill development; (ii) capacity to aspire and
organize; and (iii) improved quality of life in the form of better access to amenities
and possibility of self improvement (Tapasvi et al. 2006).3At the same time, some
adverse effects also appeared in the transition that ensued. For instance, there
occurred a degeneration of traditional institutions of various indigenous tribes with
regard to their authority and jurisdiction. As a result, the tribe/clan loyalties are
loosing their strength leading to breaking down of community solidarity. Moreover,
there is an emergence of a new elite class among the tribesmen which has created an
entirely new system of stratification, never experienced by the indigenous people
during earlier times.
Upper Subansiri district has been selected in the State for implementation of
the NREGA. The district is one of the most backward in the State in terms of all the
parameters of development except the available stock of natural resources. There are
abundance of land, water and forest resources in the district. The ownership of these
resources is private, public and communal. The published data show that the large
percentage of landholders is in the medium (51 %) and large (26 %) category. There
are very few who are marginal (0.17 %) and small farmer (2 %). There are very
strong indigenous institutions for the governance of communally owned resources.
The district however remains as one of the most backward districts of the State in
11
terms of the well-being of the rural population. It is also one of the poorly connected
districts in term of connectivity. The 80.5 % of the villages have more than 10 km.
distance from the nearest bus stop. The PRIs are the recent innovations at the
grassroots level for creating a political culture enshrined in the Indian Constitution
and involving indigenous population in their own development. There are seven CD
Blocks and 145 Gram Panchayats. Some of the basic data about the district are given
in Table 2 below:
Table 2
Data about Upper Subansiri District in Arunachal Pradesh
Sl.
NO.
Characteristics Values
1. Area 7,032 sq km (8.40 % of the State)
2. Cultivable land (1995-96 Ag. Census) 32,720 hectares
3. Population (2001 Census) 55,346 (5.04 % of the State)
4. Male 28,240
5 Female 27,106
6 Population growth (Annual) during 1991-2001 1.05 %
7. Rural Population 39,950
8. Rural ST population 95.5 %
9. No. of rural households (2001 Census) 7878
10. Total rural worker population 17,507
11. Agricultural labours as % of total rural workers 1.70 %
12. Per Capita Gross District Domestic Product (at
current prices) in 2000-01
Rs. 14,995
13. Literacy rate (2001 Census) 50.3 %
14. Literacy rate (Male) (2001 Census) 59.5 %
15. Literacy rate (Female) (2001 Census) 40.7 %
16. Human Development Index (HDI), 2001 0.438
17. HDI Rank in the State (2001) 10
18. Human Poverty Index (HPI), 2001 42.06
19. HPI Rank (2001) 8
20. Gender-related Development Index (GDI), 2001 0.471
21. Infrastructural Development Index, 2000-01 2.16
22. Percentage of villages connected by roads
(1997)
28.18
Source: Arunachal Pradesh Human Development Report, 2005
Second Administrative Reform Commission Report, 2006
12
The implementation of development schemes in such backward districts is a
challenging task due to poor governance structures, low organizational capacity, weak
infrastructure, and unequal power structure (GOI, 2nd ARC, 2006). The reach of the
administrative network is weak in these districts, leading to difficulties in
implementation of most development schemes.
To highlight the developmental priorities of the State, it would be quite
relevant here to quote from the speech that Chief Minister of Arunachal Pradesh
delivered at inaugural function of 51st Meeting of the National Development Council
at New Delhi during 27-28 June, 2005:
“Ours is the largest State in the region, sharing its borders with three foreign
countries namely China, Myanmar and Bhutan. Unlike other States, Arunachal
Pradesh did not receive fruits of development either during colonial British
rule or after Independence. After the Indo-China war in 1962 a view was taken
that any development activity here, particularly road construction in border
areas is "an avoidable risk". As a result, till today, while average road density
is 85 Km per every 100 square kilometer in the rest of the country, for
Arunachal Pradesh it is only 18 KM. We have 34 administrative centers which
are not connected by motorable road.There are four district headquarters
which do not have all-weather roads. The 'East-West corridor', starting from
Gujrat reaches up to Assam, but unfortunately after that, like 'an estranged
lover' it turns its face away from Arunachal. Ideally it should go right upto
Nampong through Banderdewa, Pasighat, Roing, Tezu and Miao. Roads are
like arteries through which the blood of development flows. Due to lack of
roads our schools are without teachers, our hospitals are without doctors and
our ration shops are without food-grains. The dream of our beloved Prime
Minister to guarantee elementary education, basic health facilities, drinking
water, electricity remains unfulfilled, due to lack of adequate road network.”
About the PRIs and their role in the development process of the State, the
Chief Minister said:
In the area of empowerment of Panchayats the State Government has already
initiated the necessary steps for devolution of powers and functions. The
Panchayat Raj system is relatively new in Arunachal Pradesh, and not as
vibrant as in some other states. Till today, we are facing initial teething
problems. We are committed to a bottom-up approach of governance with
active people's participation. We intend to encourage Local Self Government
and to strengthen these institutions along with the physical infrastructure
13
Commenting on the performance of the Food-for-Work Programme and the
approach to the National Rural Employment Guarantee Act in the State, the Chief
Minister said:
“The problem being faced by us relates to transport of the food grains as part
of the remuneration to the beneficiaries. Movement of food grains stocked in
Assam to the work sites in Arunachal Pradesh is a costly proposition. We
would suggest that for Arunachal Pradesh the entire remuneration components
should be in cash. Bringing rice all the way from Punjab and Haryana to
Arunachal Pradesh is too expensive and avoidable. The National Rural
Employment Guarantee Act would be a bold initiative towards providing
social security to our people. Nevertheless, such schemes have a huge
financial impact which the State Government can not bear at present. Such
schemes should, therefore, be made applicable along with 100% funding from
the Central Government”
Immediately after the launch of the Act in February 2006 at the National level
and its inauguration by the Prime Minister, the State was under the spell of politically
created euphoria about the scheme which was projected as the panacea of all the
problems of rural poor in the state. Actually, the problem of rural unemployment has
been the most pressing problem in a rapidly changing socio-economic landscape of
the state. The panchayat, block and district level youth congress workers under the
leadership and guidance of state-level youth congress president spread the objectives
of the Act and state rural employment guarantee scheme in the form of a social
campaign not only in Upper Subansiri but also in adjoining districts which are equally
backward in terms of parameters of human development. Even in the state capital
Itanagar, a mass procession was taken out by the youth congress workers to project
the implementation of the Act as a major achievement of the government led by the
Indian National Congress. While these active campaigns served one of the major
implementation guidelines of the Act regarding the effective communication about the
Act among the citizens, the major gain to the party in power was its consolidation of
support and influence among those communities which are late comers in the
development process.4
As mentioned earlier, this case of implementing NREGA in Aruanachal
Pradesh is not meant to highlight field level realities about a remote area where it is
assumed that some flexibility will certainly exit during the implementation process.
14
However, we would like to highlight some of the issues through insights derived from
the implementation process as witnessed in Upper Subansiri district and suggest
measures for overcoming the implementation deficit across the districts where the
scheme is being implemented. As against the position that “one-size-fits-all” approach
is not feasible, we argue that if logic of the policy is followed, strategies of seeking
compliance to statute are adopted and a motivated and committed work ethos is
generated, then achieving the objectives of such path-breaking legislations can be
achieved to a great extent.
Addressing the Problem
According to the minutes of the Performance Review Committee Meeting held
on December 20-21, 2006 (http://rural.nic.in/Presentation/NREGA.pdf), the
Government of Arunachal Pradesh has notified the State Employment Guarantee
Scheme, but the State Council has not yet been constituted. An amount of Rs. 2.73
crore has been released to the State in 2006-07 against which the utilization up to
November 30, 2006 is Rs 1.8 crore, which constitutes 66%. The district has not
applied for second installment.
In the district, 16926 households have been issued Job Cards out of which all
demanded employment and all have been provided employment. The employment has
been provided on 57 works of which 49 have been completed and 8 are ongoing.
None of the completed works are related to those mentioned in Schedule I Section 1
of the NREGA. The description of works in the category of ‘other works approved by
the Central Government in consultation with State Government’ is not available
anywhere in print, except perhaps in some government files which could be accessed
through an RIT application.
Now, if we go by the indicators that the government has set for monitoring of
the Act’s implementation, the performance of the district appears impressive in
Arunachal Pradesh. But, the outcome measures (such as number of rural household
covered under the Act) may lead to erroneous policy conclusions about the success of
this intervention. The first question that one needs to ask in response to the data
furnished by the government relates to the percentage of job cards issued to rural
15
household. How is it that in the case of Upper Subansiri this percentage is more than
200 per cent? How can be the number of those registering for Job Card can be more
than the actual number of households? So, either the definition of the household given
in the Act does not match with the concept of household that prevails in a tribal
society or the registration process was manipulated. Another possibility could be that
the number is actually showing the individuals rather than the households in which
case the necessary correction should be made in the government records for the sake
of accurate reporting.
The data further reveals that those who were issued the job cards (whether
households or individuals, is still not clear) demanded employment and were provided
the same. Out of the fifty seven works undertaken, the forty nine have been completed
and eight are on-going. What a remarkable speed of work completion! However, none
of the works is related with some of the most pressing needs of the district such as,
rural connectivity, flood control and protection, water conservation and water
harvesting, land development etc. One would be very curious to know as to what
works were undertaken and completed with such a remarkable speed.
In fact, some of the problems with the field data were mentioned in the review
committee meeting at the Ministry of Rural Development. The issues for concern in
the case of Arunachal Pradehs are:
• Irregular reports and inconsistent data;
• Reports in new MPR format not provided;
• Additional staff not provided at GP and Block level;
• Training of personnel not done;
• Reports of 100% inspection of works not provided;
• MIS not operational.
This information clearly indicates an absence if not ignorance of applying the
logic of the Act to address the problem of rural unemployment in the district, making
it a more intractable problem rather than actually solving it by providing livelihood
security for those who demanded work. The money was spent close to about two
crore which is a small amount from the standard of average spending on development
16
schemes, but the issue is whether the policy has been able to meet the needs of the
poor who really want to improve their well-being on a sustainable basis or the
problem actually remained unaddressed. This is still an open question to be explored
further.
Implementation Management
The crucial thing in this regard would be to know whether the statutory
provisions of the Act were complied with or not at different levels of the
implementation machinery. Since, we do not have primary data about this aspect of
the implementation, we can conjecture on the basis of a technique of ‘backward
mapping' (Elmore, 1979). Basically, the issues relevant here is related with the
question whether the implementation process succeeded in creating a mind set of
social intermediation in planning, coordination, execution, and auditing of the work
undertaken under the Act? Further, whether the degree of cooperation that is required
to assemble these elements together existed at the field level or not? And finally,
whether the implementation process proceeded in a fashion as designed in the Act?
The inadequacy of the implementation process and the nature of noncompliance
may be understood by two examples on which we could find some
documentary evidence. The first example is related to the recruitment of personnel for
carrying out activities related to the implementation of the Act. The order and office
memorandum for the creation and sanction of various posts, and the personnel
policies for their recruitment and engagement in NREGA related work were notified
in the State Government Gazette on 31st July (The Arunachal Pradesh, Gazette, No.
14 Vol. XVII, July 31, 2006). The posts of computer assistant (8), technical assistant
(8), account assistant (8), administrative assistant for panchayats (72), and peon (8)
were sanctioned by this government order. The Block Development Officers of
respective CD blocks were appointed as ex-officio Programme Officers till such time
government decided to fill these posts. In another notification dated 14th September
2006 and published in the Arunachal Pradesh Gazette No.20, Vol. XVII on October
31, 2006, the Government of Aruanachal Pradesh designated Deputy Commissionercum-
Chief Executive Officer, DRDA as the District Programme Coordinator, Project
Director of DRAD as Assistant District Programme Coordinator, and the Block
17
Development Officers as Programme Officers of respective blocks ‘for smooth and
effective implementation of Arunachal Pradesh Rural Employment Guarantee
Scheme. As per the order, the designated officers were authorized to exercise powers
and functions as provided in the REGS under provision of the NREGA, 2005. The
order further added that the other terms and conditions would be as per
instruction/guidance of the Ministry of Rural Development, Government of India and
State Government from time to time.
The second issue that we wish to highlight here is related with training and
capacity-building requirements for successful implementation and achievement of
statutory objectives of the Act. The guidelines to the Act clearly specify that ‘basic
training of core issues pertinent to the Act must be arranged by the State Government
with priority accorded to its key functionaries, especially the District Programme
Coordinator, the Programme Officers and PRIs. The first evidence of a training that
we could trace was as early as in April 2006, called the district level sensitization on
National Rural Employment Guarantee Scheme conducted by the State Institute of
Rural Development in the district headquarter at Daporijo (Directorate of Information,
public Relations and Printing, Press Release 236, April 21st 2006). Another training
programme for two days was held in May on Panchayat Raj system for elected
panchayat leaders. The focus of the training was not on gram panchayat’s role in the
implementation of REGS. The trainings for the technical staff involved in the
implementation process have not been held at all.
The issues that are involved here are the following:
• Recruitment and staffing of the dedicated staff for the implementation has not
been completed probably due to many aspirants in a situation of large number
of educated unemployed and the resulting political interference in the process;
• The officers who have been designated to carry out the functions under the
REGS are over-burdened with other responsibilities particularly the
maintenance of law and order, which is always accorded high priority in a
sensitive border state;
18
• The trainings have not really addressed the capacity enhancement needs of at
the pachayat level what to tale of the role of gram sabha which his very crucial
not only for initiating the registration process but also for work identification
and the social audit of the work completed. The relatively less number of
persons per panchayat could have been actually used as an advantage for
strengthening the role of panchayat.
• Planning which is very crucial for the implementation of the scheme has not
been paid any attention so far. It appears that the top-down model of work
identification mainly decided by the officials in collaboration with the political
masters at the district and state level is continuing here.
• As the funds for the implementation of the scheme were readily available in
the first phase, it seems the utilization was done using the official discretion
rather than in compliance with the provisions of the Act.
• It is quite likely that the poor households got excluded from the work
allotment in remote villages and those who were close to the district
headquarter benefited the most. As the money was available, it was quickly
disbursed in the form of wages or unemployment allowance as close to 100 %
expenditure has been shown under the head ‘expenditure on wages.’
• It is unrealistic to expect poor people in the villages to be aware of their rights
and to register for work that may start in future. So, it is likely that the village
elite produced a list of workers who wanted to work and got the wages paid
from the available funds.
• Even if the works were identifies, one cannot exclude the possibility that the
village elite played a major role in identification of projects. The issue then is
whether project will create durable assets for the community as a whole
leading to sustainable livelihood security for the poor. This issue needs to be
explored empirically as the implementation of the scheme is not merely for
disbursement of wages without the completed works that also creates durable
assets.
• The aspect of guaranteed employment would also be compromised in a
situation like this where the poor are excluded at the planning stage itself as
the wages would be paid only to those whose list is prepared by the panchayat
leader who obviously has the protection of Zila Parishad Chairperson, local
19
MLA and even ministers. On the other hand, the politicians at the district and
state levels are themselves powerless without these local elites since they
control ‘vote banks’. In a clan-based tribal society, these networks of
‘cooperation’ and mutual facilitation work very well even in the changing
political culture.
In nutshell, we can pinpoint the implementation inadequacies in terms of three
major concerns that appear to be quite visible from what we have seen in Arunachal
Pradesh. First, whether the funds flow for the scheme shall continue despite a clear
non-compliance of many statutory provisions and misreporting of data. Secondly,
whether the institutional and administrative mechanisms set up to implement the Act
are effective or there is a repeat performance just like other programmes which the
officials have to implement as part of their work. Last but not the least, the concern
for leakage of funds meant of the implementation of scheme continues to bother
policy analysts.
Creating an Enabling Environment
Implementation of an adopted public policy needs socio-cultural and political
environment for it to generate intended outcomes. Whereas the actual impact may
always fall short of planned objectives, it is the perceived impact which creates the
cascading effect on the transformation process. There are several examples to prove
the strength of this argument, for instance, the way new social movements under the
leadership of civil society organizations create an ethos for appropriate development
besides keeping watch full eyes on the possibilities of corruption and inefficiency. In
most cases, these organizations are able to deliver people-friendly services because
the worker who implement their programmes and activities are highly motivated and
rarely lack in the commitment for the disadvantaged social groups.
In the case of NREGA implementation in Arunachal Pradesh, we found that
the committed workers of the ruling political party did a great job in spreading the
message of guaranteed rural employment among the masses. The local print media
also facilitated this process, creating a kind of euphoria for a new wave of
development in the state. Whereas this strategy of political mobilization around a
20
strongly felt social need consolidated the position of the party in power and provided
it a fresh legitimacy, the euphoria appear to have faded away in the absence of a
committed and skillful workers who could make the promise of guaranteed
employment to rural poor a reality and take up the projects that will actually build
durable productive assets at the local level.
This gap can be fulfilled by involving registered civil society organizations,
welfare associations, women’s groups in carrying out the tasks related to
implementation of the Act in letter and spirit. Aruanachal Pradesh has several such
registered organizations with committed volunteers at the local level who not only
understand the local needs but are also articulate enough to get involved in activities
like, planning, record keeping, supervision etc. There is a need that they are
incorporated into the institutional mechanism of implementing the REGS.
Concluding Remarks
This paper analyzes the problem of implementation deficit in the context of
NREGA and its execution in Arunachal Pradesh. Using the available data and insights
from the field, we have shown that gaps in practice occur not only in actual
implementation as guided by the statute but also at the level of understanding the
problem and creating an enabling environment for solving it. The problem of rural
unemployment in Arunachal Pradesh as well as in other backward regions of the
country is not that of non-availability of resources or lack of investment. To this
author, the resource will flow automatically if the productivity of enterprise in
ensured. Agriculture which is the largest single employer of rural work force is not
productive in several parts of country what to talk of the backward regions. The
public works programmes like REGSs shall not make agriculture a productive
enterprise and therefore they are lack a sound logic at a time when policy reforms
should intend to enhance the risk taking ability of rural producers rather than
providing them a protection against low or poor productivity of their main source of
livelihood.
_______________________
21
Endnotes
1 Several scholarly studies have been conducted on the Maharastra EGS as it became a model of pubic
works programmes in the developing countries. Some of these studies are: Acharya (1990), Datar
(1990), Sathe (1991), Ravallion (1991), Ravallion et al, (1993), Ravallion and Datt (1995), Besley and
Kanbur (1993), Deolalikar and Gaiha (1993), Gaiha (1996, 2001), Gaiha et al, (1998), Dev (1995,
1996a, 1996b, 1998), Terhal and Hirway (1998), Datt (1998), Desarda (2001), Scandizzo et al, (2003),
Krishnaraj, et al (2004a, 2004b), Ganesh-Kumar et al, (2004).
2
There are twenty-six major tribes and about hundred sub-tribes reside in different parts of Arunachal
Pradesh. Each of these indigenous communities has unique socio-cultural, political and economic traits.
These communities are experiencing rapid transition as a result of several programmes of socioeconomic
development initiated in the late 50s. The nature and extent of change is however uneven
spatially which obviously affect the process of change across the indigenous communities as they are
bound by spatial boundaries. The politics of development and community leadership are also important
factors in determining the pace of development across length and width of the State.
3 At the same time, it is quite interesting to note that there were significant differences among different
tribal communities with regard to their adaptation to public development programmes. For instance,
some communities like, Apatani, Adi, and Mompa were quick in responding to change in very
innovative and enterprising ways, some others like, Nyishi, Hill Miri and Tagin were late in responding
to the benefits of development process. So, the issue of differential response to public action can be
analyzed by adopting a ‘cultural lens’ to understanding the determinants and outcomes of development
process.
4
The author of this paper happened to be in Itanagar till September 2006 and has witnessed the Youth
Congress led campaign in support of the implementation of REGS in Arunachal Pradesh. The local
news dailies obviously gave full coverage to the news regarding implementation of NREGA around
that time. In rural unemployment infested state, the implementation of this Act has given new hopes to
people particularly in four districts adjoining Upper Subansiri district.
22
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IIM aspirants face an uncertain few weeks. With the two-judge Supreme Court bench refusing to vacate its stay on the 27% quota, the government on Tuesday approached a bench headed by the Chief Justice. The Supreme Court now plans to consider on May 8 the Centre’s application seeking an early hearing on the constitutional validity of the 27% OBC reservation in central educational institutions. Meanwhile, the clock is ticking. The academic session starts around the third week of June for the IIMs. However, they have a three week preparatory course on mathematics and communications skills and a three week period for the students to respond to the offer letter. These can be crunched but the letters need to go out latest by May 15. Indeed, the government should ideally let the admission process go ahead assuming no OBC quota. We are not sure what would happen if the stay on the OBC quota remains in place even after May 8. Common sense would suggest that the ministry obey the verdict and keep the OBC quota in abeyance till a final order is passed, either by this bench or a larger bench. However, considering the rage which has gripped the political class it is not entirely inconceivable that the ministry may insist on a prolonged delay to the academic schedule. The attorney general is reported to have said in the Supreme Court that there was danger of students losing an academic session. But that danger has been created by the government’s refusal to allow the admission process to go ahead.
We would venture to hope that the political class would not contemplate wrecking the 2007-08 session altogether but nothing can be ruled out. The students may then have no option but to move the Supreme Court and ask it order the government to begin admissions since the apex court has stayed only the OBC quota, not the admission process. At some stage the senior political leadership needs to intervene.
 
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