GIS for Planning and Monitoring
of Works under NREGS

NREGS Planning

Planning is the most essential part of successful and result-oriented implementation of any scheme or plan. The National Rural Employment Guarantee Scheme (NREGS) has a broad horizon and high promises; in this vision the government is investing a majority of its finances in this particular scheme. Considering the high expectations and investments, planning becomes most vital for this particular scheme. A key indicator of success is the timely generation of employment within 15 days while ensuring that the design and selection of works ensure development of good quality assets. The need to act within a time limit necessitates advance planning.

The process of planning has been laid down under the Section 16 of the Act, giving it the power to make recommendations on the works to be taken up under NREGA to the Gram Sabha and the power to prepare a development plan comprising a shelf of projects on the basis of these recommendations of the Gram Sabha to the Gram Panchayat. The Gram Panchayat has to forward the development plan with its priorities to the Programme Officer for preliminary scrutiny and approval prior to the commencement of the year in which it is proposed to be executed.

Generally, a Perspective Plan of any District has the following features:
• Village-based: with the village as the unit for planning
• Holistic: attempt to cover all aspects of natural resource management along with socio-economic infrastructure requirements so as to identify all the critical aspects of development in the local areas
• Diagnostic: includes a causal analysis of poverty. This will help identify gaps and needs, and indicate the nature of interventions required
• Finalise the works that can be included under NREGA
• Delineate baselines
• Indicate outcome-based strategies
• Indicate the methods for measurement of outcomes
• Identify the existing programmes and financial resources and assess the additional resources required

Gaps in the Current Planning Process of NREGS

• Planning by the high stakeholders: The higher stakeholders do not have featured resource databases. Although there are a number of processes mentioned for streamlining the planning process, a holistic vision at each level is missing. Planning at the Gram Panchayat level is supposed to be done in the Gram Sabha, which is actually done by the block level officials at some places and by the Secretary or Sarpanch / Mukhiya at others. It is found that the majority of the plans are prepared by the higher stakeholders who need a detailed resource data base available

• Consolidation of resource database: One of the important factors that hinders effective planning of works under NREGS is non-availability of a consolidated resource base at the district or block level. The current portfolio of resource database exists in files of different departments, including the forest department and the minor-irrigation department. They have a department-specific resource database that is rarely accessible to the larger audience. Thus, this affects effective planning as well as coordinated action under NREGS. This has been seen as an important area that needs attention.

GIS and its Promises for Enhanced Planning and Monitoring

The Geographic Information System (GIS) is a computer-based tool for mapping and analysing geographic phenomenon that exist - and events that occur - on Earth. GIS technology integrates common database operations such as query and statistical analyses with the unique visualisation and geographic analysis benefits offered by the maps. These abilities distinguish GIS from other information systems and make it valuable to a wide range of public and private enterprises for explaining events, predicting outcomes, and planning strategies. In general, a GIS provides facilities for data capture, data management, data manipulation and analysis, and the presentation of results in both graphic and report form, with a particular emphasis upon preserving and utilising inherent characteristics of spatial data.

GIS is not just a map making tool. It is primarily an analytical tool that provides new ways of looking at data, and linking and analysing data by projecting tabular data into maps and integrating them from different, diverse sources.

Broadly, GIS is able to:
• Collect and consolidate information on the existing natural and physical resources of the villages
• Support the comprehensive village planning and to identify the potential areas for creation of sustainable livelihoods through the Convergent Action Plan
• Facilitate ready development of shelf-of-project aiding sustained employment opportunities in the region
• Re-focus on creating/improving livelihoods assets which, of late, has been a missing link in NREGS

Experiences with GIS for Planning in NREGS

GIS-based resource maps are already prepared for a few locations in Bihar, Uttar Pradesh and Madhya Pradesh under the various Projects. A scoping study undertaken by DA for designing an Alternative Implementation Model of NREGS in Bihar along with the Government of Bihar and the World Bank, a GIS-based decision support system was developed for the village Padhauti in Bhagwanpur Block. The internal infrastructure available with DA was used for GIS-enabled plotting of resources and the manifestation at this level of study definitely appears to be confined but has strong futuristic orientation.

It is worth mentioning the manner in which the exercise was used intensively in making the Sample Shelf of Project for a Gram Panchayat. During the participatory exercise for identification of works in the Panchayat, its categorisation on basis of their nature and its prioritisation on the basis of village need, the resource maps proved to be a visual reckoner for the villagers and PRIs. Similarly, it was also used in the UNDP - NREGS+ Project in Bundelkhand (Uttar Pradesh and Madhya Pradesh) in which we are piloting innovations under NREGS. The process flow adopted is as mentioned above. The findings clearly show the differences in the resource availability in the two distinct districts.

Pros and Cons of the GIS-based Decision Support System

GIS can be used to assimilate both spatial and non-spatial data. Projecting the available natural resource information on maps will enhance decision making regarding which resource area needs to be developed and conserved and bringing them under the umbrella of NREGA. It can also help in projecting the spatial Impact of the activities covered by NREGA. GIS-based maps can also aid the policy makers in making decisions on current and future course of work and will give an analytical tool for sharing information, identification of potential areas of work, planning, monitoring and management. GIS-enabled systems strengthen the planning process and also support strengthening of monitoring and evaluation mechanisms. The output, outcome and impact level indicators can also be plotted on the GIS and can be tracked from time to time within one interactive system.

GIS would need significant investments to establish a state-wide facility to support pilot programmes, scale up the existing ones and may need the department to advocate convergent action at the State level. q

Avanindra Kumar
akumar@devalt.org

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