COMMONWEALTH ASSOCATION FOR
EDUCATION, ADMINISTRATION AND
MANAGEMENT
VOLUME 1 ISSUE 1
JULY
2013
A STUDY OF BARRIERS AND CHALLENGES TO
WOMEN’S PARTICIPATION IN MGNREGA IN KASHMIR
Excellence International Journal of Education
and Research (Multi- subject Journal)
A STUDY OF BARRIERS AND CHALLENGES TO WOMEN’S
PARTICIPATION IN MGNREGA IN KASHMIR
Atieq Ul Rehman
Research Scholar, Department of Education
Aligarh Muslim University, U.P
Email--atiequlrehman489@gmail.com
Showkeen Bilal Ahmad Gul
Research Scholar, Department of Education
Aligarh Muslim University, U.P
Email—showkeen.bilal@gmail.com
ABSTRACT--- The focus of this paper is an exploration of barriers and challenges to women’s
participation in MGNREGA in Kashmir. MGNREGA is one of the biggest poverty alleviation
schemes in India. It aims at enhancing the livelihood security of villagers by guaranteeing 100
days of wage-employment in a financial year to a rural household whose adult members would
perform unskilled manual work. The scheme has been started in almost all the districts of Jammu
and Kashmir, but the participation of women is less. There is no doubt that women of Kashmir
are very competent and hard working. Every individual woman here is capable of making
changes and work in every sector and level of society. The Kashmiri women are perhaps the
most tolerant, courageous, talented and obviously beautiful and this is the reason that they are
living in this troubled state with dignity and decorum despite the fact that in these past 25 years
of protracted violence in the state. But in Kashmir women are less allowed to participate in
MGNREGA scheme introduced by the government because of religious restrictions and
disturbed conditions prevalent in the state. There are significant differences in the level of
women’s participation under the MGNREGA, both across and within districts. The objectives of
this study included first, to understand thoroughly the reasons behind women’s level of
participation in the scheme in different parts of the state; and second, to identify ways in which
the well-being of women participants could be further enhanced, and the social protection
potential of the programme better realized. There is an urgent need to bridge the gender gap in
the MGNREGA scheme in the state because no society and civilization can move forward
without the participation of its half population as well said by Swami Vivekanand, “There is no
chance of the welfare of the world unless the condition of women is improved”. The paper will
also explore the complex reasons why women’s participation in the scheme varies significantly
across and within districts, and suggests improvements that could maximize the impact.
Keywords: Women, Barriers, Challenges, MGNERGA, Participation, Employment
1. INTRODUCTION
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A majority of the poor in rural areas of the country depend mainly on the wages they earn
through unskilled, casual, manual labour. They are often at threshold levels of subsistence, and
are vulnerable to the possibility of sinking from transient to chronic poverty. Inadequate labour
demand or unpredictable crises that may be general in nature, like natural disaster or personal
like ill-health, all adversely impact their employment opportunities. In order to meet the needs of
poor and unskilled people, the government of India introduced, ‘Mahatma Gandhi National Rural
Employment Guarantee Act’.
The National Rural Employment Guarantee Act (NREGA) was enacted to reinforce the
commitment towards livelihood security in rural areas. The National Rural Employment
Guarantee Act of 2005, renamed the Mahatma Gandhi National Rural Employment Guarantee
Act, 2005 (MGNREGA), was initiated on September 5th, 2005 (GOI-Legislative Dept., 2005a).
It aims at enhancing the livelihood security of villagers by guaranteeing 100 days of wageemployment in a financial year to a rural household whose adult members would perform
unskilled manual work. The aim of the MGNREGA is to: “foster conditions for inclusive growth
ranging from basic wage security and recharging the rural economy to a transformative
empowerment process of democracy” (GOI-MORD, 2008:2). With this, the MGNREGA has
four main goals: (1) to reduce poverty, (2) to encourage sustainable development in the
agricultural economy, (3) to promote empowerment and (4) to promote grassroots democracy.
Firstly, the heart of the Act is to eradicate rural poverty by providing a minimum income through
employment for the poor.
2. OBJECTIVES OF THE STUDY
The specific objectives of the study are as under:
 To enquire into the participation of women in MGNERGA in Kashmir.
 To understand thoroughly the reasons behind women’s level of participation in the scheme in
different parts of the Kashmir.
 To identify ways in which the well-being of women participants could be further enhanced,
and the social protection potential of the programme better realized.
 To suggest suitable suggestion for uplifting women’s participation in MGNERGA activities.
3. MGNERGA IN J&K
Jammu & Kashmir is India’s northernmost state, lying between six mountain ranges and
covering an area of 222236 sq. kilometers. It is bounded on the north by Afghanistan and China,
on the east by China, on the south by the state of Himachal Pradesh and the state of Punjab in
India and on the west by the North-West Frontier Province & the Punjab Province of Pakistan.
The social & economic indices of J&K reflect predominance of the agricultural sector, low
degree of urbanization, inadequately developed infrastructure, widespread illiteracy, high birth
rates and low levels of investment. Nearly 80 percent of the population of the State lives in the
rural areas with average land holdings 0.73 ha. Industrial units numbering 42808 provide
employment of 187399. Per capita consumption of electricity is as low as 460 kWh. In terms of
road length per 1000 Sq.Km. Is 127/1000 Sq. Km. and for railways 0.40/1000 Sq. Kms. There
are 10515 primary schools, 3507 middle schools and 1466 high & higher secondary schools,
literacy level 54.46 percent, crude birth rate and death rate 13.27 per cent and 3.03 per cent
respectively. Long-term development of Jammu and Kashmir (J&K) is a formidable challenge
due to economic disadvantages arising out of remoteness & poor connectivity, hilly and often
inhospitable terrain, vulnerability to natural disasters, a weak resource base, poor infrastructure,
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sparse population density, shallow markets and most importantly law and order situation
threatened by militancy. Taken together, all these factors have resulted in a classic
‘backwardness trap’ of low economic activity, low employment and low-income generation. To
accelerate regional development, employability and livelihood of masses, The Rural
Development Department has implemented several schemes namely, National Rural
Employment Guarantee Act (NREGA), Indira Awas Yojana (IAY), Rural Housing Scheme
(RHS), Swranjayanti Gram Swarozgar Yojana (SGSY), SGSY Special Projects, Pradhan Mantri
Gram Sadak Yojana (PMGSY), Model Villages under (Prime Minister’s Re-construction
Programme), Integrated Water Shed Development Programme (IWDP-Haryali) and 11th/12th
Finance Commission Award.
MGNERGA was launched on February 2nd, 2006 in 200 districts of the country. In
Jammu division it has been sanctioned for the districts of Poonch and Doda in the first instance ,
in the second phase it was introduced in Jammu & Samba districts and in a third phase extended
to all the remaining 18 districts of Jammu & Kashmir Division. The scheme is expected to
enhance people’s livelihood on a sustained basis by developing economic & social infrastructure
in rural areas, attacking the causes of chronic poverty such as drought, deforestation and soil
erosion.
4. WOMEN’S PARTICIPATION IN MGNERGA
Women are a vital part of any society. Over the years, there is a gradual realization of the
key role of women in economic activities and social development. There are various issues
relating to women inferiority and complexes in the society, which need to be addressed in a
proper way. This paper is devoted to highlight the participation of women in MGNERGA with
reference to barriers and challenges.
In Kashmir, the participation of women in MGNERGA is less. There is no doubt that
women of Kashmir are very competent and hard working. Every individual woman here is
capable of making changes and work in every sector and level of society. The Kashmiri women
are perhaps the most tolerant, courageous, talented and obviously beautiful and this is the reason
that they are living in this troubled state with dignity and decorum despite the fact that in these
past 25 years of protracted violence in the state. Women of Jammu and Kashmir are facing
inequality with regard to participation in MGNERGA scheme. Gender equality and empowered
women are catalysts for multiplying development efforts. Investments in gender equality yield
the highest returns of all development investments (OECD , 2010). Women usually invest a
higher proportion of their earnings in their families and communities than men. The right to work
has been the slogan of national as well as international organization; Article 23 in the Universal
Declaration of Human Rights states employment as a human right:
 Everyone has the right to work, to free choice of employment, to just and favorable
Conditions of work and to protection against unemployment.
 Everyone, without any discrimination, has the right to equal pay for equal work.

Everyone who works has the right to just and favorable remuneration ensuring for
himself and his family an existence worthy of human dignity, and supplemented, if
necessary, by other means of social protection.
4.1.Gender Equality According to Islamic Principles
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Islamic principles promote the concept of human brotherhood and the equality of all
humans. The Holy Quran asserts that all humans are the children of one man (Adam) and one
woman (Eve) and that we all share the same lineage; there are many verses addressed directly to
women and men that explain their rights and duties. Islam explicitly maintains that as human
beings, both sexes have the same origin and, therefore, is given equal rights.
Islam views women as playing an integral role in all aspects of society, including the
workforce. According to the tradition of the Prophet Mohammed (pbuh), no ruling exists
forbidding women to seek employment.
4.2 Gender inequality in participation of MGNERGA in Kashmir
The Kashmir is a dominant Muslim state in India, instead of Islamic preaching i.e.,
equality for women, the people of Kashmir restricted women’s participation in MGNERGA
work. Let us know the actual condition of women’s participation in MGNERGA work.
Participation of Women in MGNERGA In Kashmir
Table 1
Percentage of women’s
participation in MGNERGA
(2011-12)
1
Anantanag
2.32
2
Kulgam
1.68
3
Kupwara
0.52
4
Srinagar
0.078
5
Ganderbal
0.99
6
Budgam
0.16
7
Baramulla
0.97
8
Pulwama
0.06
9
Shopian
0.46
10
Bandipora
0.37
Online information MUMTAZ\MPR 2011-12\NREGS.xlsNREGA,
(Report from District Programmed Coordinators MGNREGA)
The table 1 shows the district wise participation of women in MGNERGA activities. The
highest participation of women in MGNERGA activities during 2011-12 was in Anantanag (i.e.
2.32%), whereas the lowest participation was in Pulwama (i.e. 0.06%). In other districts also
women’s participation is low as compared to the National average of women participation in
MGNERGA. So it comes clear from the above table that there is gender discrimination in
MGNERGA and needs special effort to improve women’s participation. There are however wide
variations in women’s participation in MGNERGA across districts.
S.NO
District
5. BARRIERS AND
MGNREGA
CHALLENGES
TO
WOMEN’S
PARTICIPATION
IN
In order to know the barriers and challenges in women’s participation in MGNERGA,
interviews were carried out from 100 poor and unemployed women. Their views are as under:
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“I don’t have a problem because I operate like a man; so I can beat any man anytime”
: Words of a young female worker of MGNERGA.
I.
MGNERGA job cards are not in the name of women
The majority of the women who were interviewed; were of the opinion, that they have
not job cards for participating in MGNERGA work. They said that their male family
members have job cards so they restrict their participation in MGNERGA work.
II.
Social factors: Rigid roles for women
Religion plays a significant role in limiting the participation of women in MGNREGA in
Kashmir. Many women, I interviewed explained that certain religious practices forbid
women from working outside the home. In the Kashmir majority of people belongs to the
Muslim community, and Muslim women who practice the Purdah system refrain from
appearing in public, limiting their ability to participate in different public activities, even
when they are physically capable of participating and are in need of the income.
III.
Economic Factors: low daily wages
The other barrier to the less participation of women in MGNREGA is low daily wages.
Women of Kashmir were of the opinion that in MGNERGA work the wages given are so
less as compared to other private work daily wages. If they will participate in
MGNERGA work, they will not be able to fulfill the needs of the family because of low
daily wages.
Institutional and structural factors
Women interviewees indicated that they receive a daily rate for MGNREGA work very
late, sometimes not as per the work done, because of corruption and other factors. They
said that reason for that or lack of proper administration and supervision of MGNERGA
work. They were of the opinion that such programs are run by state government only to
get money from central government.
Civil societal factors: Low involvement of civil society groups
Civil society groups will be instrumental in increasing women’s participation, but in
Kashmir there is low involvement of civil society groups. If there would be good
involvement of civil society groups, they can very easily motivate women’s towards
MGNERGA work. NGOs can do (1) informing women about the rights afforded to them
under MGNREGA; and (2) motivating women to attend gram Sabha meetings to voice
their opinions about what types of projects to undertake
Poor quality of MGNREGA implementation
The women’s interviewed were of the view that, the scheme required the child care
services, because most of the women have been breastfeeding infants. So childcare
service be provided at work sites when more than five children under the age of six are
present. Crèches can significantly impact in the degree of women's participation in
MGNREGA. The lack of these facilities can be crippling for women, especially for those
with breastfeeding infants who cannot be left behind for long hours.
IV.
V.
VI.
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6. SUGGESTIONS TO IMPROVE WOMEN’S PARTICIPATION IN MGNREGA IN
KASHMIR
a) The MoRD should organize seminars for empowerment of women and importance of
gender equality for economic and social development.
b) The MoRD should issue a directive stating very clearly that it is imperative to make sure
that 1/3 of the beneficiaries of MGNREGA are women as required under the law.
c) The MoRD should define new “special projects” under MGNREGA that are more
accessible to women.
d) The MoRD should issue a directive that states should advertise the childcare provision
available under MGNREGA law.
7. CONCLUSION
In order to Increase women’s participation in MGNREGA and promote gender sensitivity.
The State Rural Development Department should make special provision for households where
job cards are in the name of women. This would enable women to participate actively in
MGNREGA and benefit from it. Furthermore, they will have more control over the money
earned through MGNREGA. The State Rural Development Department should make special
provisions about work assignments for pregnant women. Panchayats or other government
agencies implementing project under MGNREGA should appoint a person to take care of small
children. The district administration should monitor this rigorously.
REFERENCES
[1] Education Department, Annual Report, Govt. of J & K, 2000-01.
[2] Govt. of Jammu and Kashmir, Digest of Statistics, 2010-11.
[3] MGNERGA Act,(2005),Ministry of Rural Development.
[4] S. Jarallah. A Woman’s Status in Islam. Manar Al-Sabeel Journal. 1996, 1 (2): 45-53.
[5] F. Yonous. Gender Equality in Islam. Library of Congress, 2011.
[6] ADB. (2011). What is ADB‟s Social Protection Strategy? The Asian Development Bank
(ADB) official website. Available at: http://www.adb.org/SocialProtection/faq.asp[Accessed
09.03.2011]
[7] ADB. (2010). Enhancing social protection in Asia and the Pacific. The proceedings of the
regional workshop. Manila, Asian Development Bank (ADB). Available at:
http://www.adb.org/documents/conference/enhancing-social-protection/proceedingsenhancingsocial-protection.pdf#page=56 [Accessed 08.03.2012]
[8] Ambasta, Pramathesh, Shankar, P S Vijay and Shah, Mihir. (2008). Two Years of NREGA:
The Road Ahead. Economic and Political Weekly, vol.43 No.8. February 23, p. 41-50. (Given to
me as a hardcopy by the Institute of Development Studies
(IDS), Jaipur, September, 2010).
[9] Hirway, Indira. (2005). Enhancing livelihood security through the national employment
guarantee act: towards effective operationalisation of the act. The IndianJournal of Labour
Economics, vol.48, No.4, 2005, p.701-716.
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