Social Audit of MGNREGA Works.
Social Audit of MGNREGA Works.
Social Audit of MGNREGA Works.
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To<br />
The Principal Secretary/Secretary<br />
Department <strong>of</strong> Rural Development.<br />
~o . .YI-1301S/2!2012-MG:\'R£GA- VII<br />
Government <strong>of</strong> India<br />
Ministrv <strong>of</strong> Rural Development<br />
(XIG.'IREGA Division)<br />
****<br />
Krishi Bhawan. New Deihi.<br />
Dated the 5th July. 20::2<br />
(A A • 1 P , h M h 1<br />
" ssam, nILmacna . races, , eg a aya,<br />
Nagaland, .vlanipur, Mizoram. Tripura & Sikkim)<br />
Subject: <strong>Social</strong> <strong>Audit</strong> <strong>of</strong> :VIG:\REGS <strong>Works</strong>.<br />
SIr Madam.<br />
.A me etinz chaired by Additional Secretary (RD) reviewed progress <strong>of</strong><br />
social audit <strong>of</strong> works implemented under \fG:;REGS [:1 ~ North-Eastern Slates<br />
and Sik k im. at Shillong on 22:1
having experience <strong>of</strong> working for the rights and entitlement <strong>of</strong> the people and should<br />
possess good communication and interpersonal skills. These persons may be<br />
identified through a combination <strong>of</strong> transparent search process and advertisement<br />
selected based on a screening process. The master trainerslresource persons will not"<br />
be employees. But they may be paid suitable remunerationlhonorarium to attract the<br />
best talent.<br />
The States may complete the process to identify and select resource pool <strong>of</strong><br />
master trainers/resource persons within a month.<br />
2. Identification <strong>of</strong> Block for pilot social audit: The States will simultaneously<br />
identify a block in any district for conducting pilot social audit. The block could be<br />
the highest spending in respect <strong>of</strong> MGNREGS. An expert group on <strong>Social</strong> <strong>Audit</strong><br />
identified by the Ministry <strong>of</strong> Rural Development will provide technical assistance to<br />
the States in the conduct <strong>of</strong> pilot social audit. Thereafter, the States would develop a<br />
plan for up-scaling it to the whole State.<br />
3. Training <strong>of</strong> Master trainers at NIRD: Ministry <strong>of</strong> Rural development will organize<br />
training <strong>of</strong> master trainers at NIRD, Guwahati and SIRD, Jorethang (Sikkim) assisted<br />
by SSAAT, Hyderabad. Sikkirn could serve as a resource State for all the North<br />
Eastern States. The training will consist <strong>of</strong> classroom lectures and hands-on<br />
component (practical training) in the field. The training <strong>of</strong> master trainers from all<br />
the north eastern States will be completed within two months.<br />
4. Preparation <strong>of</strong> State specific social audit manuals: NIRD, Guw~hati will prepare<br />
quality manualslhandbooks on conduct <strong>of</strong> social audit in consultation with Ministry <strong>of</strong><br />
Rural Development and Society for <strong>Social</strong> <strong>Audit</strong> Accountability and Transparency<br />
(SSAAT). The manuals already developed would be the basis and would be<br />
contextualized to suit local needs.<br />
2
5. Setting up <strong>of</strong> <strong>Social</strong> <strong>Audit</strong> Unit: The States would set up an independent <strong>Social</strong><br />
<strong>Audit</strong> Unit within next two months. The State could establish either a registered<br />
society or a directorate to facilitate the conduct <strong>of</strong> social audit. Andhra Pradesh, for<br />
example, has set up an independent society, "Society for <strong>Social</strong> <strong>Audit</strong>, Accountability<br />
and Transparency (SSAA T)". States like Rajasthan and Uttar Pradesh have set up<br />
directorates for this purpose.<br />
shown below:<br />
A fully functional SocietylDirectorate for <strong>Social</strong> <strong>Audit</strong> would have a structure<br />
Joint Director,<br />
<strong>Social</strong> <strong>Audit</strong><br />
Director / CEO<br />
I <strong>Social</strong> <strong>Audit</strong> Consultant<br />
Dy. Director, I Dy. Director, MI5,<br />
Administration &<br />
Monitoring & Evaluation<br />
Finance<br />
I<br />
I I<br />
I I I<br />
State Team<br />
Monitors<br />
Asst. Asst.<br />
Asstt. Asstt. Asstt.<br />
7 -10<br />
Director Director Director, Director, Director,<br />
I Admn. Finance MI5 Monitoring Evaluation<br />
District Resource<br />
Persons<br />
1-2/district<br />
I<br />
Block Resource<br />
Persons<br />
2-3/Block<br />
I<br />
Village Resource<br />
Persons<br />
4-S/GP<br />
Director: The Director/Chief Executive Officer <strong>of</strong> the SocietylDirectorate could<br />
be a person who has worked in the social sector for the rights <strong>of</strong> the people for at least 15<br />
years. A Search Committee could be constituted by the State to identify and select the<br />
Director/CEO <strong>of</strong> the <strong>Social</strong> <strong>Audit</strong> Unit. The Director shall be <strong>of</strong> the same rank or senior<br />
to Director, MGNREGS.<br />
3<br />
I<br />
I<br />
I
The core functions <strong>of</strong> the Director/CEO are-<br />
a) To manage the day to day functioning <strong>of</strong> the Society I Directorate;<br />
b) To ensure that all policy level decisions related to the Society I Directorate are<br />
implemented;<br />
c) Undertake all activities necessary to fulfill the objectives and vision <strong>of</strong> the Society<br />
I Directorate;<br />
d) To recruit staff, award consulting contracts and incur necessary expenditures<br />
pertaining to these activities;<br />
e) To take disciplinary action over staff as per the terms <strong>of</strong> contract.<br />
f) To convene Governing Body and Executive Committee meetings at stipulated<br />
intervals and maintain all minutes, records and registers <strong>of</strong> the Society I<br />
Directorate;<br />
g) To interact arid communicate with all government <strong>of</strong>ficials to fulfill the objectives<br />
<strong>of</strong> the Society I Directorate.<br />
<strong>Social</strong> <strong>Audit</strong> Consultant (SAC) - Could be hired on a consultancy basis from rights<br />
based organizations with at least 8 years experience <strong>of</strong> working on <strong>Social</strong> <strong>Audit</strong> I<br />
Accountability issues, to work in close collaboration with the Director. The SAC will not<br />
be a government <strong>of</strong>ficial.<br />
Functions <strong>of</strong> the <strong>Social</strong> <strong>Audit</strong> Consultant could include-<br />
a) To advice and assist the Director, <strong>Social</strong> <strong>Audit</strong> Directorate I Society in day to day<br />
functioning;<br />
b) To advice the Director on policy direction and design issues in conducting social<br />
audits;<br />
4
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partnerships between the social audit directorate / society and civil society<br />
organizations;<br />
d) To bring in grassroots expertise and experience in the design and development <strong>of</strong><br />
social audit manuals, rules, guidelines and training modules;<br />
e) To guide the training process for conducting social audits;<br />
f) To develop research and communication agendas.<br />
Joint / Deputy Directors - Could be <strong>of</strong>ficers <strong>of</strong> sufficient seniority (with minimum 10<br />
years in service), drawn from the State Administrative Services.<br />
Core functions <strong>of</strong> the Joint / Deputy Directors could include:<br />
(a) Joint Director - Administration - Will assist the Director to oversee the <strong>of</strong>fice<br />
management;<br />
(b) Deputy Director - MIS, Monitoring & Evaluation - Will assist the Director to<br />
oversee the field management.<br />
State Team Monitors (STMs): At the State level, the <strong>Social</strong> <strong>Audit</strong> Unit could have 7 to<br />
10 state team monitors (contractual workers) to be hired on. a consultancy basis having<br />
experience <strong>of</strong> 8 to 10 years <strong>of</strong> working with civil society organizations. The number<br />
could vary depending upon the size <strong>of</strong> State/Districts. Each state team monitor could be<br />
given the task <strong>of</strong>looking after 2 to 3 districts (up to 5 districts in case <strong>of</strong> small districts).<br />
The role <strong>of</strong> state team monitors will be to monitor and train District Resource Persons<br />
(DRP), Block Resource Persons (BRP) and Gram Panchayat Resource Persons.<br />
5
Functions <strong>of</strong> the State Team Monitors could include:-<br />
a) To oversee every aspect <strong>of</strong> the social audit process from developing the <strong>Social</strong><br />
<strong>Audit</strong> schedule to monitoring the follow up <strong>of</strong> issues identified through the audit;<br />
b) To monitor and train State and District Resource Persons and village level<br />
resource persons;<br />
c) To facilitate the conduct <strong>of</strong> and submit reports on the social audit m their<br />
respective districts;<br />
d) To report and conduct investigations m case <strong>of</strong> any lapses in the social audit<br />
process;<br />
e) To liaise with district level <strong>of</strong>ficials and civil society organizations on different<br />
aspects <strong>of</strong> the social audit process to elicit their partnership and support;<br />
f) To identify potential candidates for positions <strong>of</strong> STM's as well as DRP's,<br />
following the recruitment policy <strong>of</strong> the Society / Directorate;<br />
g) To undertake any other relevant administrative functions.<br />
District Resource Persons (DRPs): Each district will require 1 to 2 DRPs to be hired on<br />
consultancy basis with at least 5 to 8 years <strong>of</strong> experience at the grass root level on<br />
people's issues. The function <strong>of</strong> DRPs will be to identify and train block and GP level<br />
resource persons and anchor the <strong>Social</strong> <strong>Audit</strong> Team <strong>of</strong> the district. DRPs may also be<br />
selected from VRPs who have completed three social audits as VRPs.<br />
Block Resource Persons (BRPs): Each block may require 2 to 3 BRPs who may be<br />
intermediate or graduates with minimum 3 to 5 years <strong>of</strong> experience and 3 years <strong>of</strong> grass<br />
root level experience. The BRPs will identify and train GP level resource persons and<br />
guide them during the <strong>Social</strong> <strong>Audit</strong> verification process.<br />
6
//<br />
-/<br />
/// Village Resource Persons (VRPs): Each GP may need 4 to 5 Village Resource Persons<br />
(VRP), who will be basically <strong>MGNREGA</strong> workers and must be literate. The VRPs shall<br />
be trained in verifying records.<br />
The Village Resource Persons deployed for <strong>Social</strong> <strong>Audit</strong> shall verify:<br />
(i) The Muster Rolls, entry and payments made in the specified time period by<br />
contacting the wage seekers, whose names are entered in such mater rolls.<br />
(ii) The work-site and assess the quantity with reference to records and also quality<br />
<strong>of</strong> work done.<br />
(iii) The cash book, bank statements and other financial records to verify the<br />
genuineness <strong>of</strong> financial reporting.<br />
(iv) The invoices, bills, vouchers or other related records used for procurement <strong>of</strong><br />
materials to testify that the procurement was made as per the procedures laid<br />
down and was economical.<br />
(v) Any other payment made by the Implementing Agency from the funds <strong>of</strong> the<br />
Scheme.<br />
The aforesaid numbers <strong>of</strong> DRPs, BRPs and VRPs may vary depending upon the<br />
expenditure under <strong>MGNREGA</strong>, number <strong>of</strong> workers and worksites requiring verification<br />
and the geographical spread and terrain <strong>of</strong> the area.<br />
These guidelines, it is hoped would provide the necessary framework to enable the<br />
states to put in place an effective <strong>Social</strong> <strong>Audit</strong> Directorate / Society at the state-level<br />
which would then ensure that necessary social audits are carried out and follow up action<br />
initiated on the basis <strong>of</strong> these social audits.<br />
~'\