Bridging governance gaps: Multilevel and culturally responsive pathways for MGNREGS implementation in Kerala’s tribal regions

Scheduled Tribes (STs) in Kerala inhabit a distinct socio-cultural and ecological terrain shaped by historical marginalisation and evolving policy interventions. This study critically examines the Mahatma Gandhi National Rural Employment Guarantee Scheme (MGNREGS) as a transformative governance instrument, exploring its potential to move beyond wage employment toward structural empowerment. Anchored in the ILO’s Decent Work agenda, Sen’s Capability Approach, and Fraser’s participatory parity, the paper analyses how decentralised and multilevel governance mechanisms interact with tribal realities to reshape policy delivery. Employing a convergent mixed-methods design, the research synthesises longitudinal quantitative data (2014-2025) from Wayanad, Idukki, and Palakkad with ethnographic insights into tribal voices, worksite practices, and institutional responsiveness. Kerala’s Tribal Plus model—featuring participatory planning and Panchayat-Tribal Department convergence—has enhanced inclusion, grievance redressal, and asset relevance. However, persistent governance gaps in work demand generation, cultural-ecological alignment, and wage disbursal constrain transformative outcomes. The study introduces a governance gaps map clustering challenges into four domains: Awareness, Capacity, Socio-Economic Barriers, and Accountability. It argues that decentralisation alone is insufficient; multilevel coordination, legal accountability, and culturally embedded design are essential. Kerala’s experience offers a replicable blueprint for justice-oriented tribal governance reform across India’s indigenous regions.