71393 Activating Social Audits in Orissa Table of Contents Acknowledgements 2 Abbreviations and Acronyms 3 List of Boxes and Figures 3 Summary 5 National Rural Employment Guarantee Act 6 Importance of Social Audit in NREGA 7 Activating Social Audit in Orissa 8 Conclusion 15 References 16 1 Acknowledgements This activity is supported by the Norwegian Governance Trust Fund on ‘Procurement and Service Delivery: Monitoring Procurement Outcomes’. The trust fund was implemented by the South Asia Agriculture and Rural Development Unit, in collaboration with the South Asia Procurement Hub of the World Bank. The task was jointly managed by a Team led by Asmeen Khan, Joel Turkewitz and Benjamin Powis. This working paper is based on a project implemented by the Centre for Youth and Social Development (CYSD), Orissa. Sanchita Ghosh provided editorial support to prepare this working paper based on project reports. Detailed comments from Benjamin Powis and Asmeen Khan are gratefully acknowledged. The authors would also like to thank the Orissa Rural Livelihoods Project, Samik Sundar Das and Vikram Menon. Cover design by Colorcom. Cover photos by The World Bank. Disclaimer: The �ndings, interpretations, and conclusions expressed in this paper are entirely those of the author(s) and should not be attributed in any manner to the World Bank, to its af� liated organizations, or to members of its Board of Executive Directors or the countries they represent. The World Bank does not guarantee the accuracy of the data included in this publication and accepts no responsibility for any consequence of their use.� 2 Abbreviations and Acronyms CYSD Centre for Youth and Social Development GP Gram Panchayat NGO Non-Governmental Organization NREGA National Rural Employment Guarantee Act OREGS Orissa Rural Employment Guarantee Scheme PRI Panchayati Raj Institution RTI Right to Information SAC Social Audit Committee TOT Training Of Trainers VMC Vigilance and Monitoring Committee List of Boxes and Tables Box 1: Right to Information Act 2005 9 Box 2: Role of Social Audit Committee in the Process 13 3 4 Summary W ith the passing of the National Rural Employment Act (NREGA) in 2005, the Government of India established a landmark to explore options to activate the social audit process in Orissa. The design draws on the provisions of the Act with a view to developing provision that enables communities to act as a sustainable model for the state. The pilot watchdogs on local level implementation of the was conducted in six gram panchayats where Government’s flagship anti-poverty program. the various stages of preparation, committee While the concept of ‘social audits’ builds on a great formation, auditing and reporting were deal of experience in the country, the provisions developed. The paper highlights the importance in the Act have not been translated into clear of social audits as an instrument to support guidelines. As a result, social audits of NREGA implementation, and in particular of raising have tended to be driven through ‘high impact’ awareness and ensuring clarity regarding the approaches led by civil society organizations roles of various stakeholders. Taking this process and have been focused on exposing malpractice forward demands a long term perspective, based rather than improving implementation. on collaboration between the government and civil society that can develop the capacities of This paper discusses an initiative by the Centre bene�ciaries to ensure effective implementation for Youth and Social Development which sought at the local level. 5 National Rural Employment Guarantee Act Purpose of the Act Rights based development The National Rural Employment Guarantee Act The legislation marked a paradigm shift from 2005 (NREGA) is an ambitious and visionary previous wage employment programs, due to the step towards ensuring the fundamental right to adoption of a rights-based approach. In particular, life with dignity in the rural areas of India. The the Act provides for employment on demand, Act is expected to enhance peoples’ livelihoods payment of minimum wages within �fteen days on a sustained basis by developing economic of completion, and basic worksite facilities. In and social infrastructure in rural areas. It also addition, the government is legally accountable empowers ordinary people to ‘monitor the for providing employment to those who demand execution of works’ through a village level social it. audit1. Employment generation under NREGA has Role of the State the potential to signi�cantly contribute towards On the basis of the provisions set out in the poverty alleviation in rural India. The following are Act, the states in the India Union are required the main objectives of the Act: to develop a state level Rural Employment Guarantee Scheme. In Orissa, the provisions of • Provide livelihood security to households in the NREGA are being implemented through the rural areas by providing at least one hundred Orissa Rural Employment Guarantee Scheme days of guaranteed wage employment in a (GoO 2006). At the local level, the scheme is �nancial year to households whose adult implemented by the elected local government members volunteer to do unskilled manual bodies. Rural households have a right to register work. themselves with the local government bodies to • Create durable economic assets and seek employment. strengthen the livelihood resource base of the rural poor. 1 The provison are set out in Schedule 17 of the Act, http://nrega.nic.in/circular/Schedule17(1).pdf accessed 11.21.09 6 Importance of Social Audit in NREGA Signi�cance guidelines that provided a broad operational framework for these provisions. Social audit is an ongoing process aimed at deepening bene�ciary engagement at all stages of local level implementation, including planning, Community monitoring monitoring and evaluation. This process helps Social Audits in NREGA share much in common to ensure that the project is designed and with the concept of participatory evaluation in implemented in a manner that reflects the that it aims to supplement monitoring by external prevailing local conditions and priorities. facilitators with community driven monitoring. Local monitoring strengthens the community’s capacity and promotes participation in Bene�t of the Act development programmes. It brings ownership Corruption and inef�ciency are alleged to have and facilitates more inclusive decision- prevented many Government schemes in India making on issues important to the community from ful�lling their potential. Mindful of this, members. It is also an important tool to generate the National Rural Employment Guarantee awareness as well as generate demands from Act included the provision for social audits to the community. be carried out by the village assembly (Gram Sabha) to promote transparency and public Local Governance accountability. Local level government institutions (Panchayati Until the Act came into effect, the community Raj Institutions or PRIs)2 have been given members could only lodge a complaint to report a key role in implementing the Orissa Rural issues or concerns. From this perspective, the Employment Guarantee Scheme (OREGS). The right of an ordinary citizen to conduct a social effectiveness with which local government bodies audit on development work under the NREGA is ful�l their role largely depends on their ability to a revolutionary step forward in Indian democracy. manage development projects and to make them The Act empowers people to play an active responsive to local needs. In addition, grassroots role in promoting transparency through village institutions such as bene�ciary committees, self- meetings and participatory planning, and seeks help groups and user groups can play a vital role to regulate the process of monitoring through in spreading awareness, mobilizing workers and the establishment of Social Accountability in monitoring the implementation of the scheme. Committees and Vigilance and Monitoring The village governments (Gram Panchayats)3 Committees. Once the NREGA came into force, play a critical role in scheme implementation at the Government of India issued operational the local level. 2 Panchayati Raj Institutions (PRIs) is system of governance that has 3 levels i.e. at the village (Gram Panchayats), block and district level in which Gram Panchayats are the basic units of local administration. 3 Gram Panchayat is the local government at the village level. 7 Activating Social Audits in Orissa Context were often absent during the process and the participation of bene�ciaries was often limited. Earlier Approaches Lack of awareness among communities regarding Various approaches have been developed to the audit process further undermined the promote the social audit process in Orissa. potential for positive change. Rather than being These included information dissemination by a community driven process, social audits tended the government and the high-impact approach to be a technical processes led by external actors, of non-governmental organizations (NGOs). most commonly non-governmental organizations Dissemination of information by the government or researchers. The post-implementation audit generates information and presents data on approach to detecting corruption was limited job registration and worksite facilities under the in terms of offering suggestions for follow up scheme. The high impact approach of NGOs activities. This approach often led to opposition is two-pronged; the mechanism hinges on from local actors, and in some cases conflict. information collected from bene�ciaries, Gram The following year, investigation and corrective Panchayat members and the members of the action by the state government showed some Block4; and a ‘public hearing’ is carried out in the improvement in its performance indicators. presence of Government of�cials and Panchayat However, gaps still existed and the implementation members to lend transparency to the process. was particularly dismal in the poorest districts5 Issues with earlier approaches of Orissa. Due to the failure of these approaches, the Centre for Youth and Social Development These approaches were only partially successful (CYSD)6 felt the need to replace the post- in terms of improving implementation during implementation audit approach with preventive the �rst year of the scheme. Social audits were measures to establish a more sustainable largely driven by civil society organizations, process of community driven accountability and and the OREGS faced a great deal of criticism transparency at the local level. that claimed widespread irregularities and misappropriation of funds. In particular, the Challenges engagement of contractors was highlighted, In the course of designing this new approach a despite the fact that private contractors were number of key challenges were recognised. banned under the scheme. The contractors were often found to be acting in collusion with local  Inconsistent Process political leaders to divert funds. Social audits There was no standard approach and central heighted a range of other issues, including: non- directives on procedures for social audits of registration of workers, discrepancies in labour OREGS, or any of which could be drawn from records (known as ‘muster rolls’), submission of the national level Act. Rather, processes had incorrect and inflated utilisation certi�cates and evolved to reflect the needs and priorities of lack of grievance redressal. These irregularities various actors. The guidelines prescribed highlighted implementation failures, as well as the desirable outcome without specifying more fundamental issues related to design. benchmarks. The of�cial versions have been Under the ‘high impact’ auditing approach, public predisposed to meet statutory requirements hearings have tended to be viewed as a one-time rather than to enable communities to event rather than an institutionalized process. undertake social audit throughout the Government and local government functionaries implementation of the project. The guidelines 4 Block: is the intermediate level governing body for a group of Gram Panchayats 5 Three districts of Kalahandi, Balangir and Koraput known as KBK are the poorest and most backward districts in Orissa 6 CYSD (Centre for Youth and Social Development) is a non-governmental organization in Orissa 8 lacked the common understanding of forming an audit committee, its structure, composition, Box 1: Right to Information function and operations. Act 2005 The Right to Information Act (RTI) 2005 is  Weak Community Awareness and a law enacted by the Parliament of India Participation. based on the citizen’s right to know, which Public indifference becomes a major is a fundamental right enshrined in the bottleneck where there is a lack of clarity Constitution of India. Under the provisions of regarding the role of the community. There was the Act, any citizen may request information little understanding and appreciation of the from a “public authority� which is required preventive role of social audits in minimizing to reply expeditiously within thirty days. corruption and upholding accountability. The Act also requires every public authority Limited community capacity, inadequate to computerise their records for wider orientation to OREGS provisions, poor dissemination and to proactively publish attendance in village meetings held by the certain categories of information so that the local government body (called Gram Sabha)7 citizens need minimum recourse to request and a lack of clarity regarding new institutional for information formally. structures pose a challenge to spearheading the social audit exercise at the grassroots. needs. The Right to Information (RTI) Act  Opposition was believed to be an important instrument, which could enable communities to demand Violent opposition by powerful interest groups information from the Gram Panchayats and supported by local government functionaries hold them accountable. However, there was identi�ed as another key challenge. The has been little integration of the Right to informants hesitated to provide accurate Information Act in the social audit initiative information for fear of reprisal. In general, resulting in reluctance to share information record keeping at the local government level records unless district functionaries insist was irregular, which further accentuated the and issue directives. problem of ensuring availability of information to the public. Approach  Access to information The objective of this project was to explore ways The Right to Information Act is considered to be to change the emphasis of social auditing, from a powerful tool in the hands of the community the identi�cation of malpractice to improving to ensure the proper implementation of the implementation. To do so, CYSD9 with support Employment Guarantee Program (Box 1). of the World Bank designed an incremental Prior to passing this landmark Act, information process-driven and community-led social audit disclosure in India was restricted by the Of�cial model capturing the diverse dynamics and Secrets Act8, and there was a tendency by challenges of the scheme. This interactive pilot the administration to use such provisions to was aimed at improving community participation, restrict access to information. The greater establishing rapport with government agencies the access to information, the greater is the and strengthening the capacity of the community responsiveness of government to community to supervise OREGS works. Most importantly, 7 Gram Sabha: village meeting, public assembly 8 Of�cial Secrets Act 1923 is India’s anti-espionage act. The disclosure of any information that is likely to affect the sovereignty and integrity of India, the security of the State, or friendly relations with foreign States, is punishable by this act 9 CYSD (Centre for Youth and Social Development) is a non-governmental organization in Orissa 9 the project set out to demonstrate a sound Implementation mechanism to address gaps in community In order to institutionalize social audit as an development initiatives that in turn helps effective tool of social accountability, the World the State to institutionalize the social audit Bank in collaboration with the Centre for Youth process. and Social Development piloted this experimental The Gram Panchayat (GP) is the lowest structure of accountability, the Social Audit planning and administrative unit for development Committee, in six GPs, selected from the three programs and schemes. Empowering and districts of Koraput, Keonjhar and Sundergarh. entitling communities with the provision of social Since a post implementation audit draws audit can play a vital role in ensuring improved unfavorable reactions, the pilot proposed to focus implementation at the GP level across the state. on new projects to enable the social audit process With this in mind CYSD aimed to promote a to be applied from the inception of the activity. vision for social auditing that was oriented The social audit pilot study was conducted in towards bringing about social accountability three stages namely Pre-Audit, Social Audit and by institutionalizing the identi�cation of Post Audit in the course of which the SAC was implementation and developing the capacity formed to supervise OREGS works. for mid-course corrections through local level participatory review and oversight. Stage – I: Pre Audit or the The initiative was based on the activation of two preparatory phase important instruments of local oversight that are suggested in the Act. The �rst of these is the Information Dissemination Social Audit Committee (SAC) at the Panchayat As the �rst step, information was made widely level that has been given the mandate for overall available to GP, block11 and district level of�cers oversight of implementation at the local level. The and other key stakeholders, including the local second is the Vigilance Monitoring Committees Government representatives and the local (VMCs) that are intended as watchdogs of project non-governmental organizations (NGOs). All level implementation10. Of the two, the VMCs stakeholders were encouraged to participate in were found to be largely dormant, and in need of the pilot from the outset, and to play an active strengthening based on a clear de�nition of their role in proposing improvements. This served role and relationship to the SAC. to surmount any reluctance to grant the SAC The formation of the SACs at the Gram Panchayat and the local NGOs access to of�cial records. level, combined with an on-going approach This provided an important means to develop of monitoring the activities of the VMC, has corrective action on issues arising out of the immense potential to improve both accountability audits. Local programs were made more relevant and the active engagement of bene�ciaries. The and focused at raising awareness levels and activation of these provisions can signi�cantly educating the rural masses on OREGS, social contribute towards overcoming some of the audit and the right to information. failures of the earlier approaches and enhancing To deal with the challenge of illiteracy, outcomes of the OREGS. awareness programs were �rst aimed at the illiterate population to seek endorsement. Their 10 Vigilance Monitoring Committee (VMC): As per the NREGA, a Vigilance and Monitoring Committees (VMC) comprising of members from villages were elected for every project undertaken under OREGS. These committees supervise, exercise vigilance and monitor the flow of funds and implementation as per scheme guidelines. 11 Block is the intermediate level governing body for a group of Gram Panchayats 10 agreement inspired trust, thus encouraging scenario of the GPs. The survey examined the illiterate segment of the village to join the awareness levels, flows of bene�ts to the process. The key message that illiteracy was not community, and the total number of eligible job an impediment to access the “bene�ciary� status, cardholders in the sampled area. In addition, and the prioritization of message from the outset the baseline examined the target groups for the was found to be important in ensuring broad- project by focusing on issues of vulnerability based inclusion at the grass root level. and the overall socio-economic environment that facilitated or prevented participation of Environment Building the villagers in the scheme. The local baseline A capacity building program was organized studies used both primary and secondary to develop a set of social audit facilitators sources and participatory discussions with identi�ed among the local leaders and village community groups. youth volunteers. This followed a training of trainers (TOT) approach. Two or three The village committees were assisted in collecting facilitators for each pilot GP were given training information for the baseline, including information in social mobilization and understanding local from the GP and government of�ces. This causes and concerns relating to the OREGS. To approach was revealing in that it underlined the enable a favorable environment for social audit types of barriers that villagers faced in accessing implementation, the facilitators were provided information. In some cases, local government with information on the detailed provisions of functionaries had to be persuaded to provide the NREGA, RTI Act, OREGS and an initial records and certi�cates of engineering works. toolkit on the social audit process. This toolkit Other documents such as sanction letters, was developed by CYSD, drawing on emerging resolutions, estimates, work orders, muster rolls, good practice in India. bills and vouchers were compiled. The data was classi�ed and analyzed to develop a status report Following this �rst round of training, the local NGO for the GP. For instance, muster rolls in weekly facilitators served as resource persons, assisting or fortnightly format were converted into worker- and training the village social audit committees wise records to enable individual veri�cation. in gathering and analyzing information, physical With the limited data in hand, the social audit veri�cation and other associated activities. To facilitators helped the village auditors assess the counter opposition, a communications campaign extent and instances of corruption. was developed in local languages, which aimed to clarify key messages, and develop support The following key observations were noted during and consent at the local level. The facilitators the study: mobilized communities to participate actively and exercise their rights in the social audit • Poor work site facilities such as rest room, process. One of the most important challenges �rst aid, drinking water and childcare of the environment building process was to clarify • Delayed or under payment of wages the institutional process for social auditing. In particular, emphasis was given to ensuring that • Low level of participation of women the SAC emerges as a higher working group at • Non-compliance to statutory processes for the GP level that would draw representatives employment application from the VMCs and facilitate their operations. • Dysfunctional VMCs Baseline Survey • Involvement of external contractors A baseline survey was conducted to provide a detailed account of the prevailing OREGS • Incomplete muster rolls 11 • Absence of postal accounts for workers The low literacy rate in the pilot areas posed a speci�c challenge. Illiterate villagers tended • Fictitious applications for employment not to attend GP meetings and it was often • Lack of grievance redressal system dif�cult to encourage them to join the SAC. Innovative processes were needed to overcome • Low levels of community participation in these challenges. In one of the pilot locations, monitoring small-scale meetings were preferred to GP • Inadequate local communication of basic level meetings to ensure optimal reach and scheme provisions more effective participation of vulnerable social groups. This information was shared at the GP level, which provided an opportunity for further physical During the course of implementation, it was found veri�cation of works and checking documents. that genuinely interested people were already This process of participatory veri�cation was playing some role in monitoring OREGS works. found to be important in instilling trust and In Meghdega GP in Sundergarh district, the SAC developing con�dence in the community to was an inactive body and hence the approach participate more actively in the process. taken was to reconstitute the committee with a view to replace the dormant members with Stakeholder Analysis new active members who were interested in The �ndings from the baseline survey provided a participating. basis for a mapping of stakeholders to understand their role in implementation. The analysis helped Orienting the Social Audit Committee identify people, groups and organizations that The SAC members were sensitized in terms of had a legitimate interest in the success of the their roles and responsibilities (Box 2) and given scheme and to anticipate stakeholder concerns. training regarding the social audit process. The This process acted as a tool to provide essential training sessions provided an understanding of information about the interests, perspectives the Right to Information Act, and the process for and expectations of stakeholders. This process- public access to key project-related records and driven approach aided in strengthening the information. They were also familiarised with key design processes, as well as deepening rapport aspects of OREGS implementation, including and trust with key local stakeholders. preparation of technical estimates, project approval, job distribution, execution and monitoring, wage Stage – II: Social Audit distribution, measurement of work, veri�cation and the public hearing procedure. Forming Social Audit Committees at the Gram Panchayat level Community Construction Works: SACs consisting of ten to �fteen members Technical Manual were constituted with representatives from a In order to assist the VMC and SAC in monitoring wide range of stakeholder groups, including project level activities, a Community Construction bene�ciaries, self help groups, village level Works manual was developed (CYSD 2009c). The organizations, community leaders, youths, manual provides information on different types of marginalized sections (especially scheduled civil works, details of estimation procedures, and castes, scheduled tribes, women and persons quality control benchmarks. In order to make these with disabilities) and existing VMC members. In technical processes accessible, illustrations were forming these committees, emphasis was given included to describe the construction process or to ensuring representation of vulnerable groups. various important civil works, such as building 12 Box 2: Role of Social Audit Committee in the Process The SAC acts as a facilitator and helps in compilation. It does not take decisions or influence public opinion. It plays the following roles: • Build an environment conducive for social audit • Collect and make information available to public • Facilitate collection of information from departments, of�ces or agencies using the RTI Act. • Facilitate transparency in scheme implementation (display of information, maintenance of records for public inspection and collection of feedback) • Transcribe information in a comprehensible medium for public • Sort, analyze and present information • Share �ndings and seek feedback, individually or collectively. • Compile all �ndings from consultations • Engage with implementing agencies to build rapport, discuss concerns and resolve conflicts • Present �ndings (presentation to the implementing agency, administration, representatives and other stakeholders. This is called Social Audit day.) • Record views and suggestions and helps the implementing body to modify the process when required and sort out discrepancies. construction, road construction, water-bound demand employment, which in turn put pressure macadam roads, cement concrete roads, bridges on the GP to respond. and culverts, tanks, ponds, stop dams, soak pits, masonry check dams, earthen embankments, An important innovation of the CYSD pilots was land treatments and contour trenches. to initiate social audits only for new projects. This was important in terms of overcoming the potential The SAC members were trained to use the stalemate in terms of recti�cation of legacy manual that provided a structural estimate in implementation issues. In the pilot areas, new a comprehensible and accessible format. The sanctioned projects were to be carried out with manual was in turn circulated to the VMCs to help the full participation of the SAC and VMCs. The them validate estimates. implementation task was delegated to the VMCs, thereby ensuring transparency in the participatory Implementation and supervision of work projects. The social audit committees were works accountable for their effective implementation and The SACs were expected to supervise and regular monitoring. In many cases, the SAC was monitor community construction works, as well as successful in promoting the streamlining of wage ensure the condition for broad based participation payments and unemployment allowance, and from potential employment seekers. On the whole in organizing a public display of muster rolls at it was found that, even in divided communities, worksite for the �rst time. The SAC presented the villagers were united by the committee under the deviations in works and pointed out improvement common agenda of employment generation. This measures to the GP and Block representatives was possible only by ensuring that all potential and functionaries, demanding the required bene�ciaries were made aware of their rights to information through RTI. 13 Activation of public vigilance and process. While public meetings were called to monitoring engage the village community at large, public relations and communication with government SACs were responsible for activating non- bodies and the panchayat were stressed upon functional VMCs and forming new ones where equally. A cooperative environment conducive to needed. The major role of the VMCs was to the audit process was fostered through regular validate estimates and project plans and ensure meetings and discussions at the panchayat level that quality parameters were adopted. A �nal that led to recognition for the SAC at higher levels report was presented by the VMC along with the of administration. completion certi�cate during the village assembly (Gram Sabha). The technical manual provided the guidelines for ensuring the benchmark standards Stage – III: Post Audit for various works to be undertaken in the six Community Sharing GPs. Members of the VMC were trained to use the technical manual while undertaking projects The SAC members presented their �ndings in to ensure a check on corruption and quality. The a multi-stakeholder community level meeting SAC trained new VMCs on monitoring guidelines conducted at the village level. The �ndings and provided a thorough knowledge of the audit included analysis of the status of registration of process and its expected outcomes. families, distribution of job cards, receipt of work applications, project preparation and selection The pilots underline the de�nite need for VMCs as of sites, development and approval of technical a part of the social audit process. For instance, in estimates, work orders, individual allotment of one of the pilot GPs that did not have a VMC, the work, implementation and supervision of works, quality of work suffered and the wage payment payment of wages and unemployment allowance, was irregular. The timely intervention of VMCs and evaluation of work. Marginalized segments, had a vital role to play in monitoring local issues especially women, were encouraged to voice closely when supported by the SAC. their opinions. Of�cials were urged to respond and take disciplinary action to overcome delays Relationship Building in implementation, the most important of which were found to be the delayed payment of wages, Establishing relationships with all stakeholders and investigate allegations of corruption where was considered crucial in the facilitation process. they were found. When GP members, block functionaries and PRI representatives came in the way of access to project related documents, the SAC promoted Public Hearings dialogue and discussion to air concerns, to engage Public hearings, called social audit forums, were these key persons more actively in the activities held at the village assembly for all completed of the SAC and build rapport. In times of need for works. The forum provided an opportunity to the higher level intervention, the district functionaries public to review compliance with the requirements were persuaded to put pressure on the local of transparency and accountability. This also administration to concede and facilitate access served as a forum where people could raise to documents. In the Ghumar GP, it was found concerns and issues that had not been addressed that Government functionaries and GP members in the audit. Discussions tended to focus on were not cooperating with the SAC, seeing them the lack of availability of complete and relevant as adversaries rather than partners. Building information, failure to enforce accountability rapport and relationships at that stage helped of of�cials, overdue entitlements, community to change these perceptions, resolve conflicts involvement, and the lack of an effective system and ensure the mutual bene�t of the social audit to resolve grievances in a timely manner. 14 Documentation civil society organizations. The meetings were aimed at creating pressure to institutionalize The experiences of the social audit were social audit in implementation. In order to help documented by the NGO facilitators and shared others replicate and institutionalize the social at the block and district level. Experience audit process, a comprehensive handbook on sharing events were organized at the GP, district the social audit process was developed and and state level involving community leaders, published at the end of the pilot (CYSD 2009a). local government representatives, OREGS implementing of�cials, policy makers, media and Conclusion Formation of Social Audit Simple technical handbooks prepared in a user- friendly format with simple text, sketches and Committees checklists bring uniformity and help check corrupt The SAC at the GP level has emerged as practices in projects. a successful model for replication and as a benchmark that could be effectively embedded Building coalitions at all levels in the social audit planning process. Based on this emerging institutional design, a sustainable While community mobilization forms the and effective approach to social audit could be foundation for social audit, there is a need to developed. build coalitions at the higher level to create a framework that is supportive to the objectives of social auditing. There is a need to involve all Training and capacity building stakeholders to create an enabling environment Mainstreaming social audit requires systematic and for working together for robust results. and sustained training and capacity building support for stakeholders. It is important that implementation mechanisms are strengthened Public awareness and to achieve its full potential. Local community, communication user groups, village-level organizations and local The success of social audits in OREGS largely government bodies need to know their rights and depends on social mobilization and active understand their own roles and responsibilities in involvement of stakeholders. Public participation the implementation of OREGS and social audit. is vital in planning, mobilizing demand, vigilance, Training modules focusing on social audit for social audit, monitoring and implementation. each category of stakeholders will strengthen the To raise awareness, intensive communication monitoring and social audit process. campaigns, tailored to local conditions, are needed. This would help the communities Simple technical manuals understand their rights and entitlements, the role of the implementing agencies and government A technical manual is helpful to enable ordinary functionaries and monitoring and grievance citizens monitoring the process of planning, redressal mechanisms. design and execution in local level civil works. 15 Institutionalizing grievance Long-term process redressal The social audit approaches so far have been one-time methodologies to detect corrupt There is consensus that community engagement practices and present facts as opposed to can play a role in demanding greater creating a watchdog committee like SAC to responsiveness, accountability, and transparency identify gaps and make mid-course corrections through watchdog committees like SACs, through a participatory review. right to information and other mechanisms. An institutionalized and community-based grievance redressal system should be a permanent measure at the local government level. References CYSD 2009a ‘Guidelines for carrying out Social Aiyar, Y and Salimah Samji, 2009, ‘Transparency Audits in NREGA’, Centre for Youth and Social and Accountability in NREGA - A Case Study of Development Andhra Pradesh’, Accountability Initiatives, New Delhi, Working Paper Series No. 1 CYSD 2009b, ‘Activating Social Audit in NREGA (Orissa perspective) Process documentation’, Natural Resource Management and Livelihood Centre for Youth and Social Development Unit, ‘An Ecological Act: A backgrounder to the National Rural Employment Guarantee Act CYSD 2009c, ‘Construction works: Community (NREGA)’, Centre for Science and Environment, Procurement Manual’, Centre for Youth and New Delhi Social Development GoO 2006: Orissa Rural Employment Guarantee Scheme 2006 http://orissa.gov.in/panchayat/ oregs-2006.pdf accessed 11/21/2009 16