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REVIEW MISSION REPORT

of the

International Fund for Agricultural Development

Country: India

Programme: Tejaswini Rural Women’s Empowerment Programme

Date: 5th – 17th November 2009

Report No. 2156 - IN

INTERNATIONAL FUND FOR AGRICULTURAL DEVELOPMENT

FONDS INTERNATIONAL DE DÉVELOPPEMENT AGRICOLE

FONDO INTERNACIONAL DE DESARROLLO AGRÍCOLA

Via Paolo di Dono, 44•00142 Rome, Italy•Tel. + 39-6-54591•Fax + 39-6-5043463•E-mail [email protected]•Telex 620330

Tejaswini Rural Women’s Empowerment Programme, Madhya Pradesh, Loan No – 682 IN

6th to 17th November 2009

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Contents

INFORMATION ........................................................................................................................ 3 MAIN REPORT ........................................................................................................................ 5

A. . Introduction ........................................................................................................................... 5 Overall Assessment of Project Implementation Progress ....................................... 6

B. . Outputs and Outcomes, by Component ................................................................................ 7 Component 1: Building institutions of the poor ................................................... 7 Component 2: Micro Finance Services .............................................................. 12 Component 3: Livelihoods .............................................................................. 13 Component 3: Women’s Empowerment and social Equity: .................................. 15

C.. Project Implementation Performance .................................................................................. 16 Project management performance .................................................................. 16 Monitoring and evaluation .............................................................................. 17 Poverty focus and targeting approach .............................................................. 18 Knowledge management: learning and innovation. ............................................ 19

D.. Fiduciary Aspects ................................................................................................................ 21 E. . Impact and Sustainability .................................................................................................... 25 F. . Conclusion .......................................................................................................................... 26

Appendices and Annexes ................................................................................................... 27 Appendix 1: Summery of Project Status Ratings ............................................................. 28 Appendix 2: Progress against previous mission’s recommendations ........................... 32 Appendix 3: Financial: Actual financial performance by financier; Disbursements by category and by component ............................................................................................... 40 Appendix 4: Compliance with Financing Agreement Covenants; Status of implementation .................................................................................................................... 43 Appendix 5: Physical progress measured against AWPB and Appraisal targets ......... 45 Appendix 6 : RIMS table ...................................................................................................... 71 Appendix 8: Audit Log ......................................................................................................... 75 Appendix 9: Supervision mission schedule and person’s met ....................................... 76 Annex I: Technical Report ................................................................................................... 78

PROJECT MANAGEMENT AND COMMUNITY INSTITUIONAL BUILDING ........................... 78 MICRO FINANCE AND LIVELIHOODS ................................................................................... 89 WOMEN’S EMPOWERMENT AND SOCIAL EQUITY ........................................................... 108 KNOWLEDGE MANAGEMENT ............................................................................................. 115 FIDUCIARY AND FINANCIAL MANAGEMENT ..................................................................... 121

Annex II: FEEDBACK OF MD REGARDING THE AIDE MEMOIRE (AM) OF THE 2ND JRM OF TEJASWINI MP ............................................................................................................. 129



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INFORMATION

DISTRICT MAP OF MADHYA PRADESH WITH OPERATIONAL AREAS (IN DARK)

CURRENCY EQUIVALENTS

Currency Unit = Indian Rupee (INR) USD 1.00 = INR 44.0 INR 100.00 = USD 2.36 INR 100000.00 (Lakh) = USD 2272.7 10 Lakh INR = 1 Million INR 100 Lakhs INR = 1 Crore INR

WEIGHTS AND MEASURES

International metric system, unless specifically described in text; except:

1 kilogram (kg) = 2.204 lb 1 000 kg = 1 metric tonne (t) 1 quintal = 100 kg

1 kilometre (km) = 0.62 mile 1 acre (ac) = 0.405 hectare (ha)

1 hectare (ha) = 2.47 acres



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ABBREVIATIONS AND ACRONYMS

AR Appraisal Report AWPB Annual Work Plan and Budget BPL Below Poverty Line CEO Chief Executive Officer, Zilla Panchayat CI - MF (Manager) Community Institution (Building) and Micro Finance CM Community Mobiliser DPMs / U District Programme Managers / Management Units DRDA District Rural Development Agency FNGO Facilitating NGO FA Finance Assistant FM Finance Manager FO Finance Officer GM General Manager of the MVVN GOMP Government of Madhya Pradesh GP Gram Panchayat MD Managing Director, MVVN M&E Monitoring & Evaluation MVVN Mahila Vitta Evam Vikas Nigam (MP State Women’s Development Corporation) MFI Micro-finance Institutions MIS Management Information System NABARD National Bank for Agriculture and Rural Development NBFC Non Banking Finance Centres NGO Non-governmental Organisation NREGA National Rural Employment Guarantee Act, GoI PIM Project Implementation Manual PMU Project Management Unit PRA Participatory Rural Appraisal PRI Panchayati Raj Institutions RIMS Result and Impact Management System RNGO Resource Non Governmental Organisation SBI State Bank of India SC/ST Scheduled Castes and Scheduled Tribes SGSY National Poverty Alleviation Programme SHG Self-help Group SPMU State Programme Management Unit SLBC State Level Bank Committee TDS Tax deductable at source TOT Training of Trainers VLC Village Level Committee WCD Women & Child Development Department



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MAIN REPORT

INDIA

Tejaswini Rural Women’s Empowerment Programme – Loan 682-IN

Supervision mission: 6th to 17th November 2009

A. Introduction1

1. Tejaswini Rural Women’s Empowerment Programme, co-funded by IFAD, State Governments, NABARD, Banks and the SHGs is a joint state program with the States of Maharashtra and Madhya Pradesh. It was declared effective from 23rd July 2007 and completed 27 months in September 2009. The project completion date is 2015. The total loan amount from IFAD is USD 39.5 million of which USD 13 million is for Madhya Pradesh. IFAD may decide at Mid Term Review, to be fielded in mid 2010, to reallocate funds based on the performance of the two States involved.

2. An IFAD/GOMP Joint Review Mission was fielded from 5-18 November 2009 in two groups. The first group visited 15 villages in Mandla, Dindori and Balaghat Districts and the second group visited 9 villages in Chhatarpur, Tikamgarh and Panna. The Mission met with the Deputy Secretary of the Dept. of Women and Children who is holding additional charge of the Corporation called Mahila Vitta Evan Vikas Nigam (MVVN), the implementing agency, and functioning as Project Director of Tejeswini. The Deputy Secretary along with the managerial staff briefed the Mission before the field visit. In the field the Mission met and inter-acted with women in SHGs and VLCs according to the schedule arranged by the staff and also held informal group discussions with men and women in the villages. It met with the District Collectors, CEOs of ZPs, Heads of Line Departments, District Staff, RNGOS and NGOs. The Deputy Secretary accompanied the Mission during the visit to Tikamgarh District.

3. In line with its TORs, apart from assessing physical and financial performance, the mission focused on issues related to Project Management including salaries and emoluments and on the level of leadership and synergy required between the various interveners in order to improve the quality of the support and service delivery. Given the high level of convergence required by the project design, senior and sustained leadership is critical for progress in achieving the project’s objectives. The Mission also focused on the strategy required to mobilise resources from the financial institutions and various government programs to support the livelihood strategies of the families in the project; this is critical since the project budget does not allocate funds for this purpose which will begin to take priority in the coming year. The issue of distress migration especially by landless and marginal dryland farmers in the project area in villages where drinking water is in short supply and available only at long distances during summer and where NREGA is not functioning as expected arose repeatedly during the field visit; these were the major concerns of the poor which need to be addressed.

4. The observations and recommendations of the mission were shared, discussed and agreed to at a meeting of stakeholders on 16th November 2009 in Bhopal with Staff from the SPMU, DPMUs, Bankers, Line Departments, RNGOs and NGOs. The meeting had no chair person as both the Deputy Secretary cum MD of the Nigam

1/ The Mission comprised Mr. Aloysius P. Fernandez, Mission Leader, Project Management and Institutional Building Specialist, Mr Harish Chotani, Micro Finance and Livelihoods Specialist, Mr Sudhir Muralidharan, Financial Management Specialist (from 6th to 9th November 09), Ms Judith D’Souza, IFAD ICO - Gender Specialist and Ms Ankita Handoo IFAD – ICO, Knowledge Management Specialist from 10th November 2009. The mission was accompanied by the Tejaswini management staff and district staff.



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and the GM (Additional Programme Director) was unable to attend. The mission also regrets to state that it was not able to meet with the Additional Programme Director throughout the visit who is currently managing the programme. This Aide Memoire was presented at a wrap-up meeting with the Principal Secretary, Department of Women and Children on 17th November 2009. The Aide Memoire could not be discussed with the MD before the meeting with the Principal Secretary but was consequently discussed later. The observations of the MD are recorded as Annex II.

5. The Mission could not have carried out its tasks without the full cooperation of the Deputy Secretary, Officers of the MVVN, DPMs, NGOs and their staff and the willingness of people to assemble to suit the mission’s schedule. This was provided in full measure for which the Mission is grateful. Apart from managing the logistics of arranging meetings in the District with Senior Government Officers, Bankers, Line Departments, the Press and visits in the field efficiently, the staff contributed by their observations drawn from their experience in the field. The mission has made every effort to incorporate their observations and thanks the staff for their contribution.

6. The Mission wishes to highlight the delay in finalizing the base line report and in undertaking the RIMS survey as part of the Loan Agreement. Certain non compliances with the loan covenants also need to be addressed. The critical issues the mission would like to highlight are the following: i) there is no full time Programme Director as part of the Loan Agreement leading to administrative delays in programme implementation ii) 13% achievement till date after 27 months of the programme operations iii) the AWPB for 2009-10 was submitted for approval to the Fund on 1-5-09 instead of on or before 1-2-09; iv) failure to establish and maintain an information management system within 180 days of loan effectiveness v) delay in appointing auditors; appointed without prior permission of the Fund vi) delay in submission of the audit report; the deadline lapsed on 30-9-09 vii) Vacancies and delayed contracts for the staff need to be addressed viii) Baseline survey is yet to be finalised ix) RIMS is yet to be taken off

7. Most of the issues were highlighted in the previous JRM.

Overall Assessment of Project Implementation Progress

8. Tejaswini which implies capability and radiance, aims at empowering 1,80,000 poor women (in 12,000 SHGs) to make use of economic, social and political opportunities for their improved well being. The Progress Report submitted by the SPMU, lists the four key thrusts of Tejaswini. The Mission observed that the first - namely the development of strong and sustainable Self Help groups based on mutual trust and support of their members – has progressed well but needs to be taken to the next level in terms of quality in training , new modules which help all the members to participate effectively, to understand the causes of their poverty and how to address them. To implement this thrust, RNGOs and FNGOs have been selected through a rigorous and transparent process, training material has been developed, 60 Locations have been established and the staff trained to build the institutional capacity of the SHGs. They in turn provide training in financial and organisational functions to the SHGs.

9. Wealth ranking exercises to identify the poor who were left out of SHGs have been conducted and the identified poor have been formed into SHGs. As on Sept 30, 2009, a total of 11,263 SHGs have been formed with 142923 members. The Report states that except for 1068 SHGs all others have received trainings from modules 1 to 15. However since 8183 SHG were formed during the past 11-12 months, the FNGOs and NGOs need to review whether training has been adequate. Several trainings have been conducted in gender sensitisation and on building awareness of social issues. The major problem faced by the management in this area is the high



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turnover of the field staff especially the Community Mobilisers due to low emoluments and inadequate exposure of field staff to other projects with a similar design.

10. The second key thrust namely access to micro finance services through Bank Linkage and the third thrust namely the provision of improved livelihood opportunities and empowerment to use them, have still to begin. Some of the older SHGs have started to lend for small livelihood activities like agriculture, poultry and goatery, lac culture and horticulture.

11. The fourth thrust is to promote activities related to gender equity and empowerment including access to functional literacy, improved health, labor saving infrastructure and participation in local governance. The Program has invested in health training and awareness and in functional literacy – beginning with the ability to sign one’s name; but the other aspects of this thrust like participation in local governance cannot be achieved without strong SHGs and Federations which requires intense and focused facilitation.

12. The major gap in the strategy to achieve the third and fourth thrusts is the lack of involvement of men in the program. Gender equity requires outreach to men as well as women so that any small steps for change do not lead to violence against women.

13. As for livelihoods, it is clear that families have a livelihood strategy rather than one or two large activities undertaken independently by men or women. This strategy covers several small activities including labor and involves the whole family. Besides in some activities, when they grow to scale, both men and women need to co-operate. Further as new livelihoods emerge, incomes increase and children shift from working to attend school, the family livelihood strategy will need to be adapted. For all these reasons men and youth need to be included in planning livelihood strategies.

14. During discussion in the field it was clear that employment and drinking water are major concerns. Lack of both causes distress migration and inability to meet basic needs especially in women headed households and landless families. The Project therefore needs to give priority to ensuring that NREGA provides employment for 100 days, that government programs for drinking water are implemented and that the large farmers do not capture drinking water sources for private irrigation. Part of the budget allocated in the project for reducing women’s drudgery could be used to provide drinking water sources. In the districts of Tikamgarh, Chattarpur and Panna many women complained that between March and July they have to spend a large part of the night walking long distances to collect drinking water as it was too hot during the day.

B. Outputs and Outcomes, by Component

15. The cumulative expenditure against AWPBs up to 31 March 2009 was 11.20%. The

achievement against the 2009 -10 AWPB is 13.30% The expenditure against Project Management was highest at 44% while expenditure against Livelihoods and Micro enterprises Development is nil. Though there is a cumulative shortfall of 62% in the amounts transferred by GoMP to the project as compared to the commitments as per the AWPBs, due to the slow progress of project implementation, the shortfall has not adversely affected project activities.

Component 1: Building institutions of the poor 16. The major institution at the base is the Self Help Group whose members self select

themselves on the basis of affinity. They are also economically homogeneous groups. The project endeavors to empower them so that they can access their entitlements, build balanced gender relations, invest in a livelihood strategy and



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influence local panchayat raj institutions. Empowerment includes the confidence to take decisions and the skills to build linkages, access resources and markets and to manage the outcome of these decisions. The SHGs are given training by the NGOs in institutional capacity building which includes largely the skills to manage their organization and financial matters. They are also encouraged to federate and to decide on the functions they would like their federations to perform.

17. As on 1st Nov before the arrival of the mission, 11,263 SHGs have been formed with 1,42,923 members against a target of 12000 SHGs with 1,80,000 members. A number of SHGs have less than the expected average of 15 members. The SHGs have a total savings of Rs 319.75 lakhs. The amount of savings range from Rs 20 to Rs 40 in all Districts. Some are saving fortnightly, others weekly and a few on a monthly basis. The MIS report indicates that 76% of SHGs are meeting as per schedule and attendance is 79%. Migration does have an impact on attendance; it is reported by the members that those who migrate contribute their savings due during their absence when they return. In the southern Districts and in Panna many groups have larger savings in the Bank than in their box. It was seen that 51% of the members have the Government issued BPL cards. This, however, does not mean that the others are not below the poverty line.

18. The staff have taken measures to encourage internal lending as recommended by the first Joint Review Mission. There has been a spurt of loans during July, August and September 2009. In all, 41273 loans have been given by the groups to members amounting to Rs 291.18 lakhs. The number of borrowers is 30357 which indicate that some have taken already more than one loan. There is a difference in the volume of lending, with Balaghat leading with 16637 loans to 10102 members and Panna at the bottom with 2774 loans given to 2441 members. Chattarpur is marginally better than Panna. The number of loans in the northern 3 districts totals 11581 while in the 3 southern Districts it totals 29692. This further confirms the mission’s assessment that the northern districts are under greater stress and have fewer avenues for investments and employment. However, even in groups where lending has started over six months ago, there is a considerable amount retained by the SHGs in their safety box and Bank accounts in all the Districts. Hence there is no immediate need for loans from Banks.

19. While interacting with the SHGs the mission found that the purposes of loans are for health, agriculture, food, education and repair of house and pump sets. The highest loan which the mission encountered during the field visit was Rs 2000 for house repair. The largest proportion of loans in the SHGs visited was for health. The size of loans ranged from Rs 50 for food to Rs 2000 for individual members. There are a few examples of group activities in Devendernagar, Gunnor and Amanganj. The groups borrow for group activities mainly agriculture on land which the groups have taken on lease. The largest loan taken by a group was Rs 5000 for lease of land and agricultural inputs.

20. Unfortunately the MIS data does not capture the purposes of loans. This is a gap that needs to be filled. If the project has data on the purposes of loans it can analyse existing potential for investment and intervene in a focused manner to enhance it by training and support services. The mission’s rough estimate is that there will be a hundred small livelihood activities rather than a few major ones during the first two years. Hence the data has to be drawn from people’s choices which are expressed in the purpose of loans they take, rather than from any study which could be of assistance at a later date when MIS data shows that there is potential to add value and scale in certain areas.

21. There is a debate whether loans for food and clothes (consumption loans) are allowed. Experience in other projects indicates that in the initial stages the number of loans for food and clothes is large, though the size is small. If the trend continues after 3 to 4 years, however, it is a major indicator that interventions to



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enhance livelihood opportunities have failed. Overall indicators of the success of livelihood interventions by the project are: a) a decreasing trend in the number of loans for food, clothes; b) increasing trend in the number and size of loans for livelihoods including trading; c) increasing trend in loans for education and for training in off farm skills which are medium to long term investments. The practice of borrowing from SHGs to repay high cost loans from private sources has also emerged in several districts. In the south women are redeeming their mortgaged jewels; in the north the practice of taking loans from private money lenders before migrating has reduced; they now borrow from the SHGs. This helps to increase capital in the hands of the poor and must not be discouraged.

22. The MIS records the rate of repayment at a poor 51% which contradicts the mission’s findings in the field. On further enquiry it emerged that the MIS does not take into consideration the outstanding amount. Hence even though repayment has been regular at the point of data collection for MIS consolidation, the MIS will record the remaining amount as “unpaid” even though it is due only after the date of data collection. MIS needs to correct this.

23. The cash book, savings and loan ledger, loan repayment calendar, minutes and attendance books are well maintained in the SHGs visited in the northern districts though the mission reports that resolutions are not recorded in many cases in the southern districts The Community Mobilisers (CM), Community Accountants (CA) and Group Accountants over all have done a good job. The Mission however, noticed that the CMs and CAs tend to dominate the proceedings of the meetings. Initially the mission was informed that it took over one hour to record the accounts, as a result they were the major players. The time has now reduced but the habit of taking centre stage continues. The CMs need to play a supportive role during meetings and ensure that each meeting appoints a Chairperson who conducts the proceedings. All meetings should start with an agenda drawn up by the members. The meetings should also have other items on the agenda which includes people’s priorities like water, health and employment as well as the project’s agenda to introduce literacy, sanitation, numeracy, domestic violence and gender balance. This is part of capacity building.

24. In conclusion the mission would like to record that all the recommendations made by the first joint review mission relating to SHGs have been implemented.

25. There is a major concern. The Mission was not able to assess the level of participation in the SHGs since in many cases meetings were arranged with four or five members from several groups. Obviously the leaders of the groups were selected. In some Districts however the mission met each SHG separately. This practice must be adopted in future. However the mission observes that in every group about 5 members participate actively. Participation is the key to empowerment. The dynamics of effective participation by all members in the group generates confidence to take decisions and to manage the group’s affairs. The responsibility of the leaders and of the CMs is to ensure that all the members participate.

26. Village level Committees: The Appraisal envisages one VLC in every village consisting of representatives of all SHGs in the village whether formed under Tejaswini or under other programs. It does not expect the VLC to have a Bank account with regular financial transaction but rather to function like a platform or forum to take up issues with the Panchayat (the problems faced by NREGA beneficiaries could be one). They would mobilize assistance for housing, ensure that the poor get their entitlements like widow pension, assistance for the disabled etc and organize health camps. The Project management must not therefore promote VLCs as institutions similar to the SHGs. The Mission recommends that the speed with which VLCs have been set up in all villages may be a little too fast. The demand for a VLC needs to come from the SHGs. At present the VLC gives the



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impression of being a project imposed initiative. The Mission met a few VLCs and was happy to note that they are functioning as fora or platforms as envisaged in the Appraisal. They need to develop their own rules regarding frequency of meetings and take on functions decided by the SHGs not by the Project management. Facilitation should be done by the Location staff.

Recommendations Who When • Enhance quality of trainings to groups - related to methodology

and content. The methodology should become more participatory. Group exercises and games could be added to the training provided to encourage participation of all. A Chairperson selected for two or three meetings is a way of encouraging participation of all. Trainers should ensure that they train the whole group together and ensure that all participate.

• The content has to be expanded to cope with emerging issues related to livelihoods, wage employment under NREGA, water, heath, sanitation and gender; to help people understand the causes of their poverty, to cope with these problems and to build a strategy and vision for the future.

• The SPMU/RNGOs should be able to hire, if required, the best trainers from outside their institutions.

• Exposure to other projects for middle and field level staff is recommended.

• Regular feedback from training conducted by RNGOs/FNGOs should be obtained and analysed by the SPMU and shared in reports.

SPMU + DPMU + RNGOs + FNGOs

Immediate Immediate On going On going Immediate

Adequate training be provided to the 8183 SHGs formed during the past 11-12 months; Refresher courses should be organised for the older and weaker groups.


Mar 10 Continuous

The MIS should capture the purposes of loans; the patterns and trend are to be analysed by the FNGO/RNGOs/SPMU to provide a basis for interventions to promote livelihood strategies


Mar 10

Men and youth to be involved in planning livelihood strategies SPMU + DPMU + RNGOs + FNGOs

Mar 10

The VLCs need to function like a platform of all SHGs in the village. Their rules and functions should be decided by the SHGs not by the project. (The Appraisal does not expect the VLCs to have a Bank account with regular financial transactions)


Immediate

27. Trainings for staff and service delivery providers related to peoples institutions: Since the last JRM, there have been a number of trainings for SHGs, Community Mobilisers, Community Accountants and Location Coordinators on gender sensitization, government schemes, women’s issues, social justice and equity, and general women’s health issues. There was a cross learning visit of location staff. There has been much emphasis on health in this period. A state level workshop was held on health issues in the Tejaswini operational areas. There were



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district levels training of location staff on health education for the community groups. The mission noticed that women were more aware of health issues and that the training for service providers has had an impact on the quality of organizational systems in the groups.

28. However the mission noticed that more work is needed on the training of group members. There were women who remembered a few discussions only on the basis of the pictorial book. At this juncture, in order to strengthen group dynamics and decision making potential, it is important to constantly relate issues depicted in the pictorial book to real life situations in a pro active and consistent manner. Having completed these modules just once in a period of 8 months may not indicate that the group is conversant with the ability to deal with the situation when it comes their way.

29. There is a strong need to conduct refresher courses for the CMs to deal with real life situations in order for them to be able to give the required handholding to the groups. It was also observed in many groups, that women were moving faster than what the CM skills could support. Hence there is a need to work at enhancing the skills of the CM and Location Staff to be able to respond adequately to the growing needs of the women.

30. Training of para vets, health workers and para agricultural extension staff has still to take off. The mission also observed that unless all the staff and visitors to the field have a basic grasp of agriculture and related activities they are not able relate and build a rapport with the people. Trainings for staff in these areas should be provided.

31. Staff at senior levels report that they have not had the opportunity for training in institutional capacity building of people’s institutions and exposure to projects where this has been effective. They have also not had exposure to micro finance and as a result cannot guide others in this area. The Mission observed that the issues and strategies related to micro finance are barely understood.

Recommendations Who When Training of para vets, health workers and para agricultural extension staff to commence

SPMU Dec 09

Basic courses in agriculture to be provided to all staff involved (SPMU,DPMU,RNGOs, NGOs)

SPMU – Livelihoods Manager

Mar 10

Senior Program staff to be provided exposure to projects promoting institutional capacity building of SHGs, micro finance for livelihoods and sustainable federations of SHGs

SPMU – CI & MF

Mar 10

Refresher courses for CMs in specific areas identified by the RNGOs, FNGOs and SPMU

SPMU – CI & MF, RNGOs, FNGOs

Dec 09

32. Support Institutions: RNGOs and NGOs: 23 FNGOs are engaged mainly to establish rapport with people, to identify the poor and to provide institutional capacity building of peoples institutions. They are supported by two RNGOs. Nine other NGOs and 4 non government institutions are empanelled for gender related issues.

33. The proposal to recruit one RNGO for livelihoods in under consideration. The RNGO/FNGOs in the northern districts proposed that they form a Consortium to support livelihoods. This is discussed further in the next component and needs to be considered. There are no resource NGOs to provide constant support to micro finance, agriculture and animal husbandry.



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34. The last mission had recommended that there be more synergy between the RNGOs and FNGOs and SPMU. There is still much to be done. According to the contract signed between the RNGOs and the SPMU, clause (vi) in the Terms of Reference relates to providing “backstopping support to the FNGOs in implementing field level activities related to SHG mobilization and savings and credit operations”. However it seems that a request has to come from the SPMU to the RNGO to directly intervene in the field. It was observed by the mission, that a letter requesting the RNGOs to go to the field was issued on 27th August 2009 by the SPMU. The contract also covers quantum and content of work which RNGOs may not have. The mission also observed that FNGOs felt that the trainings imparted by the RNGOs at the community levels needs to be re looked at in terms of the content and methodology. There is a need for the SPMU to engage more with the RNGOs on the programme.

Recommendations Who When

SPMU should engage more with the RNGOs and make monthly plans with the RNGOs for field visits ; feedback to be provided to SPMU that can be incorporated into the overall monitoring of the programe and into the AWP&B and the M&E system

SPMU & RNGO

Dec 09

Representatives of the SPMU be present when the RNGOs are imparting training to the communities or at the district level.

SPMU & RNGO

Dec 09

RNGOs to upgrade content and methodology. SPMU & RNGO

Dec 09

The proposal of the RNGO/FNGOs of the districts to form a consortium to promote livelihoods in place of a new RNGO to be considered

RNGO to take lead with SPMU

Mar 09

Component 2: Micro Finance Services 35. The Project’s provision for micro finance of Rs 84 crores is the largest of all

components. Yet micro finance is only one of the factors on which self employment activities in the livelihood strategies of the poor depend. Wage employment especially in drought prone areas is another. Further unless there is investment by Government, Private Sector or NGOs in an area which generates employment and creates opportunities which the poor can exploit, given the necessary skills and support, micro finance is of marginal use; it is not a trigger for self employment though it may play a command role in some cases. At the minimum interveners should lessen the risk of investment in dry land farming for which the SHG members are beginning to take loans. Watershed development programs endeavor to do this.

36. The Appraisal envisages the entire amount of Rs 84 crores to come from Banks. This works out to Rs 14 crores per District or about Rs 3 crores every year between 2010 and 2014. The two major programs providing loans are the SHG-Bank Linkage program which has funds for training the SHGs in institutional capacity building but no subsidies for assets and the SGSY program which has a subsidy for the asset purchased as well as funds for training.

37. The mission recommends that the projects utilize both the SHG-Bank Linkage Program and the SGSY. The SGSY program cannot cover all the 2000 SHGs formed under Tejaswini in the District; the mission also does not envisage the SHG-Bank Linkage program do so. Discussions with Senior Officers in Tikamgarh and Chattarpur indicated that they are willing to include around 500 SHGs under SGSY over the next three years. Even if the first loan cum grant of Rs 25,000 was



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provided under SGSY, this would bring into the program around Rs 7.5 crores over 3 years. A beginning has been made in Chattarpur where 11 SHGs have received between Rs 5000 to Rs 6500 amounting to Rs 57500 from SGSY. In Dindori 158 groups will be graded shortly for linking with SGSY. The second loan cum subsidy under SGSY is a large one and may not be taken by all SHGs. The other 1500 SHGs in each District could be covered under the SHG-Bank Linkage program which is still to take off. The 12,000 SHGs would on a average receive Rs 70,000 each as loans over 3-4 years if the entire Rs 84 crores is to be utilized. The project needs to develop their absorption capacity to cope with this amount. The first step of opening Bank accounts for 3171 SHGs has been taken. The decision of the Government to pay wages under NREGA through cheques is also helping women to relate with Banks directly.

38. The mission met several Bankers in all the Districts. They are positive as regards lending to SHGs but tend to adopt the same strategy for SGSY and the SHG-Bank Linkage Program. The crucial difference is that under the SHG-Bank Linkage program only one loan is given to the SHG after assessing its institutional capacity according to indicators established by NABARD. The SHG then decides on the purpose and size of loans to members. Thus under the SHG-Bank Linkage program the SHGs are free to lend for any purpose including health, education, food and trading and at whatever size and for any period of time required. Under SGSY, however, while the first loan cum grant of Rs 25,000 can be used for any purpose by members, the second and major loan is provided to each individual in the group who must submit an individual proposal. Loans are for assets only mainly animal husbandry and are of standard size.

39. The other source of funds which could be tapped are the NBFCs/MFIs. In Balaghat, the Anupama Education Society is functioning like an MFI. It has taken a loan of Rs. 75 lakhs from SBI. In Chattarpur an NGO named Bundelkhand Mahila Sahakari Sakh Samiti is also functioning as an MFI with funds borrowed from Banks. Private for profit NBFCs have also started operations in some areas. The FNGOs report that they are selecting a few enterprising members from each SHG and providing them loans which tends to break up the SHG.

Component 3: Livelihoods 40. Since the Project has made no provision for infrastructure like wells and market

locations which are required if agriculture is to be stabilized and productivity and diversification for the market increased, the project staff and FNGOs are making efforts to raise resources especially for wells from Government programs. Although investment in infrastructure is not strictly micro finance, it is critical to reduce risk and increase the potential to absorb credit at least in the farm sector including agriculture, animal husbandry and horticulture which are the sectors where growth will start. Initiatives have already been started. About 775 members in 231 SHGs have received training and inputs from the Agricultural department, 3876 members in 871 SHGs from the Horticultural department and 1145 in 330 SHGs from the Panchayat which includes grants for wells under Kapil Dhara. Each village has a periodical haat where traders from outside sell their non farm products and locals sell vegetables and forest produce.

41. However there are a large number of landless families who need employment. Tejaswini does not incorporate the Food for Work program which provides wage employment which is critical in the initial stages of the project till the poor find opportunities for self employment. NREGA provides the answer, provided it is well managed. The FNGOs need to give priority to discussing the problems related to NREGA in the SHGs and VLCs. One of Tejeswani’s objectives to empower the poor to influence governance in the Gram Panchayats could well start with demands to ensure that job cards are provided and kept with people that work is provided for 100 days and wages paid in full and regularly.



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42. During the meeting with the RNGO and FNGOs of Tikamgarh, the Project’s proposal to recruit an RNGO for livelihood promotion was raised. The RNGO/NGOs suggested an alternate model: a consortium of all the FNGOs and RNGO working in the District. The consortium would promote livelihood activities according to their expertise and experience. For example Srijan could take up Poultry and Agriculture, Vikalp fisheries, Development Alternatives Processed Foods and the RNGO Mahila Chetna Manch dairy and agriculture. This proposal needs to be considered in all districts as it has the advantage of engaging institutions which have already established good rapport with people. Meanwhile initiatives for larger sub sector activities including a preliminary study could be undertaken independently

43. In the first stage, the mission recommends that an analysis be made by the FNGOs of the loans taken by SHG group members. The list provided by the Districts shows a diversity of purposes both on and off farm rather than a few large activities. This analysis would help the interventions to focus in providing inputs to use water efficiently through drip irrigation, improve organic content of soils through compost and vermi compost, conserve water through appropriate bunding, construct low cost open wells for protective irrigation, provide basic veterinary care through barefoot veterinarians etc. These activities can be supported through small loans from the SHGs, grants from government programs and peoples contribution in labor. Sub sector activities are larger in scale and have the potential to rise on the value chain. They require more technical and financial support to take off as well as stable market linkages. At least part of the start up funds will have to come as grants if not the full amount.. Since there is no provision in the Project’s budget, the mission recommends that a revision be considered during mid-term review to meet this contingency.

44. Competition for water: In drought prone blocks of the northern three districts drinking water is scarce after January till the monsoon arrives. Many villages find their wells in or near the village drying up and have to depend for drinking water on large ponds and tanks usually at some distance which are also used for irrigation. Large farmers cultivate high value crops like mentha between Kharif and Rabi which are water intensive crops. This depletes the only water source and in case of a failure of the monsoon, the drinking water situation becomes critical. This scenario is also true of open wells. The mission was informed of an open well provided by the Panchayat for drinking water which was captured by a large farmer for irrigation. Due to intervention a compromise was reached with both the farmer and the people using the well. The priority for drinking water must be established in these areas. Lack of drinking water is a major cause of hardship for women who have to walk long distances and at night to avoid the heat to collect water. Lack of water is also one of the major reasons for migration and reduces the time and energy required to develop livelihood strategies.

45. Insurance: The District staff and NGOs have made efforts to promote the Shramik Kalyan Yojana which provides life and accident insurance to BPL families and the Ladli Laxmi Yojana which provides support for education for the gird child; they are both State govt. programs. As a result these two programs have spread throughout the Districts. ICICI Insurance (Hath Kargha Udyog) has also been promoted. Some Districts have also mobilized crop insurance

Recommendations Who When Senior and Middle staff to be given a sound theoretical understanding of the SHG-Bank Linkage and SGSY Programs

SPMU Mar o9

Both SGSY and SHG Bank Linkage Programes to be used to provide finance An analysis of the purposes of loans given by SHGs to their members to be made on the basis of which livelihood interventions should be

FNGO+ DPMU+SPM

Immediate



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planned U

Priority to be given to infrastructure for livelihoods including drinking water

FNGO+ DPMU+SPMU

Immediate

Government schemes providing infrastructure support to livelihoods should be mobilized on priority

FNGO+ DPMU+SPMU

Immediate

Component 3: Women’s Empowerment and social Equity: 46. Overall, the progress of this component from the previous JRM till date is very

unsatisfactory. For the period from April to September 2009, as per the AWPB, there has been little done in this component apart from trainings for the location staff and one study on violence against .The total budget for the year is Rs 104.02 lakhs out of which only 5.85 lakhs has been utilised and this is due to administrative delays in the implementation of the planned and approved activities.

47. This is a serious issue to consider firstly, that this is a women’s empowerment programme in a state that has recorded among the lowest levels of gender equality in the Human Development Index of the country and secondly, due to the non implementation of the planned activities, the movement of building up of the confidence levels of decision making of the women has been neglected.

48. Women’s Drudgery Reduction: The issue of women’s drudgery reduction has been deliberated at the district level and proposals were received by the SPMU. In most cases, the issue related to water has been identified in many of the districts. There have been proposals for repair of hand pumps, concrete flooring near wells, reconstruction of the walls of drinking water wells, drainage near hand pumps and wells, drinking water troughs for animals near wells. The district of Dindori has seen a focus on mud roads for access to schools and markets as the women felt these were the more pressing demands to decrease their burden in travel. The programme has contracted the Rural Engineering Services of the PHE to carry out these tasks. However, the mission came across instances in the northern districts where collection of potable water was the main reason for increasing the drudgery of the women. Accessibility to potable water is a felt need among all women met and the mission recommends very strongly that be addressed within this AWPB as part of the drudgery reduction initiatives. This can also be linked up with the NREGA

49. Gender Cross Cutting Group : As noted in the Appraisal Report, the Gender Cross Cutting Group serves to help direct the project to address gender issues in a sensitive and meaningful manner in order to support the social and cultural empowerment of women in the operational areas. However, this group is yet to be formalized. There were, however, a series of meetings of the Gender Cross Cutting Group. A meeting was conducted during the mission where the Gender Manager was unable to attend as she was in the field. The mission would like to request the management staff to refrain from carrying out meetings with stakeholders during the course of the mission in future. It has come to the notice of the mission that many of the resource persons on this committee have not been reimbursed their costs for the past 5 months. It is strongly recommended by the mission that this issue be looked at immediately so that Tejaswini does not lose out on the support of this group to help mainstream gender and their own credibility.



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50. The Gender Cross Cutting Group has in collaboration with the SPMU, DPMU, RNGOs and FNGOs developed a gender strategy for the programme. The main issues identified for work are: accessing social security schemes for the vulnerable women (widows, single women headed households, ultra poor women); women’s participation in political arenas like gram sabhas and increased women’s representation in such bodies; literacy for tribal women; and overall legal literacy for women. The group has advised the programme unit not to address all issues in all districts at the same time but to have specific interventions in districts with relevant issues.

51. The mission feels that the gender strategy needs further elaboration with measurable outcomes and outputs. It is also strongly recommended that the livelihoods strategy needs to have a gendered approach and there is a need to involve men in supporting women in their empowerment process.

Recommendations Who When Future AWPBs for all components to be more realistically planned so that there is a more concerted effort to building confidence of the women rather than just achieving output targets.

SPMU Jan 10

There is a need to work more on sensitization of both women’s issues, tribal issues and weaker sections of the community for all the staff including the SPMU, DPMU and Location staff.

SPMU +RNGO

Dec 09

The mission recommends that the gender resource book be completed by end December. The CMs need to be facilitated to take it in a culturally sensitive manner to the field. A meeting of all the consultants involved to finalise the book can be called immediately after this mission to ensure its smooth delivery.

SPMU Dec 09

A workshop on the study related to violence against women be immediately carried out.

SPMU Mar 10

Access to potable water be addressed within this AWPB as part of the drudgery reduction initiatives. This can also be linked up with the NREGA

SPMU +DPMU

Mar 10

The livelihoods strategy needs to have a gendered approach; there is a need to involve men in supporting women in their empowerment process.

SPMU+ DPMU +RNGOs +FNGOs

Immediate

An agenda should be introduced in every group meeting. There should be an emphasis on discussion of NREGA and access of government social security schemes for women in such meetings where a plan of action could be made.


Immediate

C. Project Implementation Performance

Project management performance 52. The post of Program Director has been vacant since inception except for a few

months. The post of MD of MVVN has been vacant from 16 May 2009. Since then several Officers have had brief stays. The present arrangement where the Deputy Secretary of the Dept. of Women and Children is holding additional charge of the Corporation and is also functioning as Project Director is at best a temporary measure. The Mission was made to understand the difficulty of posting an IAS Officer of 8-10 years experience as Program Director. The expenditure during the past 27 months totals less than Rs 2 Crore. If the issue of appointing a full time Program Director from the IAS cadre for two years at least, cannot be resolved, it



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may be more realistic to post an IAS officer as full time Managing Director of the Corporation MVVN who could also function as the program Director of Tejaswini. Since by far the major program of the MVVN is Tejaswini, this arrangement would in reality serve the purpose of having a full time officer as Program Director of Tejaswini. This change if agreed to needs to get the prior approval of IFAD.

53. The complex design of Tejaswini which involves several interveners both Government and Non Government, requires senior and sustained management. Lack of this during the past 7 months has had a negative impact on project management. Team meetings at the SPMU and at the Districts attended by SPMU officers have not been held which has led to a breakdown in communication and loss of learning through sharing; decisions required to take up training and other programs approved in the AWPB have been delayed; staff transfer especially in the Finance Departments have not been managed so that the new staff are posted in time for proper taking over of responsibilities; several posts are lying vacant; the audit report for 2008-9 was not available to the mission pending signature by the PD; relations between Project staff and RNGOs/FNGOs which need to be managed in such a way as to get the best through synergies are deteriorating because emerging problems are not addressed in time; payments to FNGOs have been delayed; submission of reports by the SPMU to IFAD in time has not been forthcoming. Since program activities like trainings even though approved in the AWPB needs SPMU sanction, the absence of a PD has resulted in delays in giving these sanctions thus holding up several programs.

54. Over-all there is a general and growing dissatisfaction with emoluments especially among the field staff including all the NGOs. In 2007 salary increases were given to SPMU Managers and DPMs, but the recommended annual increments have not materialized. Daily allowances need to be increased.

55. FOs who enjoy higher grades than the DPMs in their parent departments are classified as Grade B under the project whereas the DPMs are classified as Grade A. The FNGOs submit expense vouchers which are really reimbursements. In this case TDS is not applicable. Yet the SPMU deducts TDS to err on the side of caution thereby causing the FNGOs a lot of hardship. Senior management alone can take decisions in these cases. Hence the gap at the top has to be filled. Overall the project seems to be drifting and quickly needs senior and sustained leadership if it is to achieve what it aspired to, namely to be the better half of the Tejeswani program.

Recommendations Who When Monthly meetings of Senior staff in the SPMU need to be conducted; RNGOs to be invited.

SPMU Immediate

Monthly meetings at District level with the RNGO, FNGO and other partners need to be held; SPMU staff to be invited.

DPMU Immediate

Quarterly review meetings at SPMU level with DPMU senior staff, RNGOs and 2 FNGOs (on a revolving basis) and with other partners need to be held

SPMU+ DPMU+ RNGO

Immediate

SPMU could request IFAD staff to attend the quarterly review meetings

SPMU Quarterly

All vacant posts to be filled Immediate Review of salaries and allowances and rationalization of grades and travel allowances to be made before December 2009 and decisions taken.

Dec 09

FNGO reimbursements to be exempted from TDS SPMU Dec 09 Administration delays in approving activities by SPMU which have already been agreed to under the AWPB to be avoided.

Immediate

Monitoring and evaluation



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56. A basic M&E system has been developed which is manually operated without the use of software. The IFAD India office had supported the programme via email on formation of a M&E system that reflected the programe needs, in the first quarter of the year, but till date, there was no indication that any kind of M&E system was established. As part of the Loan Agreement, the programme is mandated to form a M&E system 180 days after Loan Effectiveness. But it is more than 3 years and there is still no proper M&E system in the programme to help monitor and manage the programme. The last JRM recommended that a M&E system be established along with gender sensitive indicators. However this has not been complied with.

57. The existing M&E system captures transaction details of the groups like amount collected, inter loaned, number of meetings etc. It also captures discussion of social issues in the field but not the decisions taken on the discussions.

58. There are 3 levels where information is collected. At the village level, the CM collects the group data and at the monthly location meeting submits it to the LC. The LC then consolidates the data and sends it to the DPMU where it is consolidated location wise and sent to the SPMU. The data at the SPMU is then transferred manually into designed software for consolidation. The report is then shared at the monthly review meeting with the DPMs, which presently has not been conducted over the last few months after the last full time MD was transferred. There is also a Location Planning meeting which is held every quarter at the district level where the RNGOs, FNGOs, DPMU and a representatives from the SPMU discuss trends as seen in the analysis of the data. However, these meetings have not been happening.

59. For assessing the gender situation in the field, a survey format was developed by the SPMU with the support of the GCG. They have planned that this survey would be carried out with the same sample (300 villages, 5 villages of each Location Centre) over a period of 2 years and then 3 years later to measure the impact of the programme on the women. It is also imperative that the M&E system be made so as to incorporate the social evolution of the groups and the members.

Recommendations Who When There is an immediate need to set up a computerised MIS SPMU Immediate It is imperative that the M&E system incorporates the social evolution of the groups and the members.

SPMU+ RNGO

Immediate

A M&E system needs to be set up immediately with gender sensitive indicators including incorporation of all components of the programme.

SPMU+ RNGO

Immediate

It is also important that qualitative indicators of the social evolution and dynamics of the group be incorporated so as to track the growth of the groups.

SPMU+ RNGO

Immediate

IFAD to support Tejaswini in development of M&E, RIMS and AWPB

IFAD Jan 10

Poverty focus and targeting approach 60. The project’s strategy of identifying the poor has been effective in excluding the

non poor. The number of eligible families originally identified through the survey done at the beginning of the programme was 493837. The first Joint Review Mission recommended a rigorous process to identify the poorest from this number who had not joined the groups as well as to include the poorest families holding a BPL card into existing groups or form new ones. A wealth ranking survey was consequently conducted to identify the left out poorest families. The wealth ranking exercise identified 126895 households of which 47747 households were included in SHGs already formed by Tejaswini and 25697 in SHGs formed by other programs leaving 53451 families not in any SHG. The project then formed 1008 new groups in the months of August and September with members from these 53451 left out



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families. At an average of 15 members per group this works out to a figure of 15120. This leaves 38349 families still outside the SHGs.

61. The project has already covered 142923 members and will come close to achieving its target of 180,000 by including the remaining 38349.

62. The Mission would like to state that it could not identify any non-poor members in the SHGs with which it interacted. Though some were able to produce adequate food for the whole year on their lands, they had to depend on labour for cash to meet other needs. Those in drought prone blocks of which there are 11 out of the 20 in the three northern districts are also highly vulnerable. The demand for agricultural labour in these district is also low, forcing the landless and near landless to migrate.

Knowledge management: learning and innovation. 63. KM plays an important role for effective project implementation and project

management. Improved information generation, analysis, documentation and sharing done at project levels leads to enhanced knowledge systems, which can help to take crucial management decisions with regard to project implementation.

64. The overall performance of the KM component is moderately satisfactory. Since KM is not a separate component in the AWP&B of the project, there is no KM plan and the activities are done in an ad hoc manner rather than in a planned, strategic and systematic way. Most of the communication activities are under different project components like women’s empowerment and institution building.

65. Communications activities undertaken by the project were a) preparation of resource materials for SHG development (training module, self assessment calendars) for all 6 districts, (b) SHG melas to increase awareness about banking procedures at the location level, (c) inter location peer review learning series in the 6 districts and (d) a haat bazaar to introduce marketing skills among the SHG members. There is frequent media coverage of the Tejaswini programme at the district level especially after an event is organized. This was observed in both the Chhatarpur and Panna districts.

66. Knowledge Sharing: KS activities include a quarterly newsletter by the SPMU, which include case studies, success stories and innovations from the field. It also includes details on one government scheme in every issue and information regarding project components. The newsletter is in Hindi and 2000 copies are published. Each district receives 300 copies for further dissemination. The newsletter targets the district staff, FNGOs, location coordinators and community mobilizers.

67. There is a blog created at the SPMU level. The blog includes case studies, lessons, articles from the field and relevant information from other websites. Knowledge sharing is also done through emailing article, news clippings, reports and other documents to the districts and location offices. However, the project does not have a separate website of its own. The website is a more effective KM tool for information collation, knowledge sharing and advocacy. Most of the projects of the India country programme have their own websites. This has led to greater visibility of the project, improved knowledge sharing and advocacy.

68. Monthly meetings also conducted at the district level to share experience and discuss implementation issues. In 2 villages it was observed that at the community level, there is information sharing session organized on different government schemes.

69. Documentation and MIS: During the field visits it was also observed that at the location office of Chhatarpur district, the documentation of the SHG progress was systematic and well maintained. Some innovative ideas to document success stories and field experience along with MIS data have been attempted in some



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location office of the Panna district. KM and M&E linkage is very vital for improved knowledge management. Data emerging from M&E can be analysed and used to improve project implementation, prepare knowledge products and have greater knowledge sharing. Another observation made was that most of the documentation (reports, case studies) is done in Hindi. Translating some documents in English would also help the project to contribute to the IFAD website, newsletters and other publications on a regular basis. The translations could be done on a bi-monthly basis and sent to the IFAD ICO for further sharing.

70. Photo documentation is another innovative way that was adopted to record processes in 2 location offices of the Panna district.

71. Knowledge Products and studies: A number of knowledge products to build into the overall gender awareness strategy for the community have been planned. A resource book on gender related issues was in the making from March 2009, but has been stalled due to administrative issues. A diary was also planned for the community mobilisers to document the social issues that emerged in the group meetings and to track the actions taken. This diary is scheduled to be distributed to the Location staff this month. An interesting study on violence against women was carried out by Vishaka and Sangini to build the material for the resource book on tackling violence against women in the programme. However, further work on this resource material is still pending due to administrative delays.

72. There are no information and knowledge products with the communities at present to retain the information that they are receiving. It is recommended that FNGOs be trained to involve the SHG members in creating knowledge products like posters, wall paintings on the various project components and government schemes. For e.g. there could be posters/ wall paintings made instead of providing information in a lecture format. The CM can involve the women in recreating the information as per their level of understanding. These posters, banners and wall paintings can be displayed for the community at large.

73. There can also be a message board located in a prominent part of the village, which can show all the important meetings or events that are to be held daily or weekly. It is recommended that cloth banners be made for each LO, which can be utilized, when there are bigger events like melas, haats and others.

74. Pipeline Activities: The other pipeline activities include brochures on women’s empowerment, violence against women, drudgery reduction. The target audience for this would be the community mobilzers and FNGOs who would further disseminate this information at the village level. A radio programme to be aired on Akashvani that was to start in April has yet not taken off due to administrative delays and a knowledge sharing meeting with district staff on communication and skill development that was planned is also pending.

Recommendations Who When Training workshop on KM components and developing work plan to be included in the AWPB

SPMU to lead

March 2010

Training on KM and M&E linkages for SPMU+DPMU SPMU to lead

April-September 2010

Training on communication skills, inter personal skills and material development, photo documentation for location staff

SPMU July 2010

Website for Tejaswini to be created in the next AWP&B SPMU with assistance from IFAD

April 2010 onwards

Translations in English of reports and documents to be sent to SPMU Every



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IFAD every quarter quarter

D. Fiduciary Aspects

Financial management

75. Manual Accounting.: The Project maintains manual books of accounts at the SPMU and all DPMUs. With project activity set to pick up significantly, manual accounting will not be able to cope with the increased transaction volume. Furthermore, data integrity and arithmetical accuracy will always be suspect under a manual system.

76. HR issues related to Financial staff: During detailed discussions with the Finance Manager (FM) at the SPMU, Finance Officers (FOs) and Finance Assistants (FAs) at the DPMUs, the following facts emerged.

77. The Finance Manager at the SPMU was served with transfer order in August 2008 and is yet to be relieved by the project. He may have to take up his new assignment as soon as a suitable replacement is provided to the Project. Further, the Finance Unit of the SPMU has only 2 staff – FM and FA. This has led to the FM having to function as an FO and not as a Manager. He has had to neglect the qualitative aspects of his assignments and spend his time moving files related to trivial payments.

78. The Finance Officers (FOs) of Dindori and Mandala DPMUs have been transferred and are likely to take up their new assignments before the end of November 2009. They will hand over charge to their respective Finance Assistants in the absence of any replacement. Further, the post of FO-Panna is vacant and is being looked after by FO-Chatarpur as an additional charge. The Finance Assistant at DPMU-Balaghat has not been attending office for the past 2 months. Staff shortages at DPMUs are severely impacting effective financial management of the DPMUs.

79. Finance Assistants are contractual employees engaged by the Project at a consolidated remuneration of Rs.8000 per month. The Mission understands that this remuneration is not competitive as per contemporary market conditions and as a consequence the present incumbents are on a continuous lookout for better opportunities. Further, FAs do not get any other benefits as per their contract.

Disbursement

80. As on 30th September 2009, the cumulative disbursement by IFAD against the loan of USD 13 Million stood at USD 0.901 Million (7 %). The Government of MP has met 62 % of its overall commitment to the project. No contributions have been received from the co-financiers or from the beneficiaries. Details are given in Appendix 3 (a). Loan disbursement was low because project expenditure was low and there was inadequate follow up of pending Withdrawal Applications by the SPMU. It may be noted that if loan disbursement does not reach an acceptable level by the Mid Term Review due in 2010, a part of the loan may be cancelled.

Counterpart funds

81. The IFAD loan is delivered to the project through the budgetary allocation from the Government of MP to the Department of Women and Child Development (WCD). Since the amount transferred to the project is not bifurcated between loan and counterpart funds, the extent of shortfall in the counterpart funding cannot be clearly identified. However, considering the commitments of both IFAD and the Government as per approved AWPBs for 2007-8 through 2009-10, the cumulative shortfall in the amount transferred to the project by GoMP as compared to the commitment as per AWPB, was to the extent of 62 %. However, due to the poor



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progress of project implementation, the shortfall in transfer of funds by GoMP has not adversely affected project activities.

Compliance with loan covenants.

The Mission observed the following non compliances with loan covenants.

82. Section 3.02 (b) : As per this section, the SPMU was required to submit a draft AWPB for 2009-10 for approval of the Fund on or before 1-2-09. The draft AWPB was submitted for approval of the Fund on 1-5-09.

83. Section 3.05 (b) :As per this section, the State Government is required to make available funds as per the AWPB, at least quarterly in advance. The funds transferred by the State Government to the Project till 31/3/09 represents 38 % of the requirement as per AWPBs.

84. Section 4.01 : As per this section, the SPMU is required to establish and maintain an appropriate information management system within 180 days of loan effectiveness. This is yet to be done.

85. Section 5.02 (a) : Under this clause, the SPMU is required to appoint auditors with prior permission of the Fund, within 30 days of the start of the year. The auditors were appointed without the prior permission of the Fund on 10-9-09.

86. Section 5.02 (b) : Under this section, the SPMU is required to submit an audit report to the Fund within 6 months of the close of the financial year. This is yet to be done and the deadline lapsed on 30-9-09.

87. Section 4.2(a) of Schedule 3 : Under this section, the SPAC and the Empowered Committee are required to meet a certain minimum number of times a year to direct programme implementation. These committees are not meeting the required number of times in practice.

Procurement

88. Bulking of requirements: The SPMU has not bulked requirements of location equipment like invertors and furniture etc and DPMU equipment like invertors and digital cameras. for centralized procurement as required by the IFAD Procurement Guidelines and Schedule 4 of the Loan Agreement. Instead the SPMU has allowed DPMUs to procure these items locally. However, computers for location offices and SHG kits have been procured centrally from Government agencies. The Mission noticed an anxiety on the part of the SPMU management to procure from Government agencies, ostensibly to avoid the competitive bidding process.

Audit

89. Selection of Project Auditors : Auditors for the Project for 2008-9 were appointed by applying the least cost method to a short list of auditors prepared through a very basic technical evaluation process. As a result of following the Least Cost Method as against the Quality cum Cost Basis, the auditors who quoted the lowest cost were selected. It is noteworthy that the auditors had quoted an audit fee of under $ 900 for the audit of the SPMU and 6 DPMUs. The project could not provide IFAD’s NOC for audit TOR or for appointment of auditors for verification by the Mission.

90. Programme Financial Statements (PFS) : The SPMU did not have the capacity to prepare the Balance Sheet, Sources & Application of Funds and Withdrawal Application Summary in IFAD’s Standard Reporting Formats. They submitted Sources & Application of Funds and WA Summary for audit, but the correct formats were not complied with.



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91. Audit Process : The Mission understands that the auditors spent a total of 6 days at the SPMU and 2 hours at each of the DPMUs during the audit. Further, while discussing the audit methodology with the auditors, the Mission observed that the auditors had dropped important audit points, forming part of their working notes, from their draft reports

92. Audit Report:. The final audit report for 2008-9 was not available to the Mission pending signature by the SPMU Management. A draft report was provided for verification. The report did not address the following areas mentioned in the TOR.

• Use of IFAD funds as per provisions of the PLA

• Timely release and proper utilization of counterpart funds

• Procurement of goods and services as per provisions of the PLA

• Adequacy of fixed asset records maintained by the project

93. IFAD places a high degree of reliance on programme audit reports and a poorly drawn up audit report can seriously impact IFAD’s assessment of the programme financial management capacity.

94. Audit Log : The SPMU reported that audit observations for 2007-8 were auctioned. However, the Mission was not provided with any evidence of the same. Since the report for 2008-9 was not finalized, the audit log did not contain any entries.

95. Internal Audit : The audit report for 2007-8 and the draft audit report for 2008-9 have recommended the introduction of an internal audit system for the Programme. The internal audit system must cover the SPMU, 6 DPMUs, 29 FNGOs, 2 RNGOs and 12000 SHGs. The extent of check may be decided by the SPMU. The focus of the internal audit exercise must be on strengthening of the internal control system and on compliance.



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Agreed action Who When

Accounting Software : the SPMU must take immediate steps to procure and implement an off the shelf accounting software ( like Tally) at SPMU and DPMU levels. The manufacturer must be asked to provide requisite training and hand holding support during implementation. Parallel manual records must be maintained till the end of this financial year after which manual records may be dispensed with. DPMU Finance Units must be provided with one desktop computer and UPS along with the new software. The additional hardware requirement is budgeted in the AWPB for 2009-10.@ Rs.40000 per location.

SPMU By 31-12-09

Resolution of HR Issues : Immediate and decisive steps must be taken to retain the FM-SPMU and 2 FOs who have been transferred to their parent units. If they cannot be retained, they must be suitably replaced. Vacant posts of FOs must be filled forthwith. The Empowered Committee may look into the revision of the remuneration contractual employees and other HR related issues raised by the JRM.

SPMU & Empowered Committee

Next meeting of EC.

Budgetary Control: There is a need to ensure that proper budgetary control measures are in place throughout the project. Wherever it is felt expedient to deviate from the AWPB, proper sanction must be taken from IFAD for AWPB revision.

M-FARM/ CFO

With immediate effect

Budgetary Control : The SPMU must take urgent steps to reconcile financial and physical progress. Reporting formats from DPMUs to SPMU must be amended so that physical and financial progress for each month and on a cumulative basis are reported on a monthly basis.

SPMU By 31-12-09

FNGO Payments : The SPMU must formulate a model to link FNGO payments to performance rather than to their operational expenditure. SPMU must also investigate the reasons for delayed payments to FNGOs and take remedial measures. The financial powers to make FNGO payments may be delegated to DPMUs.

SPMU By 31-12-09

Delegation of Financial Powers : Limited sanction/ approval powers, up to Rs.20000 per transaction, may be delegated within the SPMU from the MD/PD to the APD/FM . DPMs and FOs may be given joint financial powers up to Rs.25000 per training, to plan and organize trainings at the DPMU or Block level without prior approval of the SPMU.

SPMU By 31-12-09

Procurement : Wherever possible, requirements must be bulked and centralized at the SPMU.IFAD’s procurement guidelines must be followed without exception.

SPMU With immediate effect

Disbursement : The SPMU must try to avoid part loan cancellation at the MTR stage by speeding up disbursements. This can be done by appointing a full time PD, planning and scheduling activities budgeted in the AWPB and by delegating financial powers both within the SPMU and to DPMUs.

SPMU With immediate effect.

Compliance with loan covenants : The PLA is to be complied with in letter and spirit under all circumstances.


Audit : The auditors must be asked to revise their draft report after covering all matters mentioned in the TOR. The auditors for 2009-10 must be appointed after approval of the audit TOR by IFAD and the appointment must have the prior consent of IFAD. The auditors must be selected using the QCBS method rather than the Least Cost Method.

SPMU By 30-4-2010.

Internal Audit : The SPMU must engage the services of professional chartered accountant firm(s0 through a fair and competitive process using

SPMU By 31-



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Agreed action Who When

the QCBS method to conduct the internal audit of SPMU, DPMUs , FNGOs and SHGs. The internal audit TOR must be finalised in consultation with IFAD’s India Office.

12-09. To cover 2009-10 and onwards.

E. Impact and Sustainability

96. The Mission feels that it is too early to assess impact much less sustainability. Most of the SHGs are less than a year old and since over 8000 were formed during the past 11 months, most of them would be a few months old. Adequate trainings could not have been imparted to these groups.

97. The RIMS study has not been done which would have given the mission some idea of the situation on the ground. Several of the studies related to progress of indicators under RIMS have not even been planned.

98. In view of this situation and given the slow progress during the past few months, IFAD and GoMP need to re-look at the timing of the Mid Term which is scheduled for mid 2010. There are pros and cons regarding this date. On one hand a Mid Term in 2010 may help to re-allocate funds to needs that have emerged during 2009 and 2010. On the other hand there are only 7 months more before the scheduled Mid Term. The Mission does not expect the Project to gather steam until a full time MD for MVVN has been appointed which will take at least 3 months. Hence there will be limited progress by mid July if the Mid Term continues as scheduled.

99. However these are some green shoots related to impact which the FNGOs and Project Staff reported and which the Mission also encountered during the interaction with the groups.

100. Women reported to the mission that the groups have provided them with social space where they feel free to meet and to discuss their concerns, and where they can access loans They repeatedly informed the mission that they would continue meetings even if the community managers were removed. Several of the group leaders have growing in confidence. They are willing to talk opening, to discuss and even to express opinions different to those held by the staff and visitors. To the mission they expressed their happiness with the SHGs because i) they were able to take loans for health and for migration which they formerly used to take from the money lenders at high cost; ii) they have begun to visit the Banks; iii) they feel confident to talk to government officers and the Sarpanch.

101. There are a few activities which were reported to the mission which called for confidence to take action beyond their family and village boundaries. One group in Mandla was planning to organize a dharna against alcohol sales and use because of the resulting domestic violence and expenditure. There are also examples of VLCs deciding to go to the Sarpanch to discuss problems related to NREGA. There is an increasing number of women in groups taking land on lease and cultivating it together.



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F. Conclusion

102. Tejaswini started well. It rapidly established an Empowered Committee under the Chairmanship of the Chief Secretary, brought out systems and procedures for organisational management, selected RNGOs and FNGOs through a well managed process and set up the Management structure in all the six Districts. Training programs for staff were conducted. However as the project was gathering steam to take off, change of the Project Director and the unsettled situation since May 2009 has slowed the process down and undermined its focus. At present, it is the finance unit which really runs the project since all activities need to be cleared by finance. There is no effective leadership to take decisions required in projects like Tejaswini which are focused on empowerment and change which sometimes do not fit into a financial management culture.

103. The strengths of Tejaswini at present are really at the District levels but the program is so centralized in terms of clearance for any activities including training, that the Districts are also not able to work as they would like to. The FNGOs have continued to provide training though at a slower pace due to several administrative hurdles which need to be removed.

104. The field base however is sound, and with the support of the Government of MP and good leadership, the project will take off quickly. The mission requests the SPMU to translate the entire JRM report in Hindi and distributed to all DPMUs, RNGOs and FNGOs.



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Appendices and Annexes Appendix 1 Summary of project status and ratings Appendix 2 Progress against previous mission recommendations Appendix 3 Financial: Actual financial performance by financier; Disbursements by

category and by component Appendix 4 Compliance with financing agreement covenants: Status of implementation Appendix 5 Physical progress measured against AWP&B and appraisal targets Appendix 6 RIMS table Appendix 7 Knowledge management: Learning and innovation Appendix 8 Audit log Appendix 9 Supervision mission schedule and persons met Annex I Technical report Annex II Feedback of Managing Director on the Aide Memoire



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Appendix 1: Summery of Project Status Ratings SUMMARY OF PROJECT STATUS AND RATINGS

A. Basic Facts

Country India Project ID 1314 Loan/Grant No. I 682 Project Tejaswini Rural Women's Empowerment Programme Supp. Loan/Grant Date of Update: 14 December

2009 Last Supervision

Financing terms HC

Supervising Inst. IFAD/IFAD No. of Supervisions 0

USD million Disb.rate%

Approval 13-Dec-05 Quality at entry rating Total costs 208.69

Agreement 12-Oct-06 Effectiveness lag IFAD loan 39.45 7

Effectiveness 23-Jul-07 Problem project DSF grant

MTR IFAD grant

Current completion 30-Sep-15 Last Amendment Domestic 168.97

Current closing 31-Mar-16 Last Audit Cofinancing 0.27

No. of extensions 0 Cofinanciers

To be determined 0.27

B. Project Performance Ratings

B.1 Fiduciary Aspects Last Current B.2 Project implementation progress Last Current

1. Quality of financial management 5 3 1. Quality of project management 5 3

2. Acceptable disbursement rate 3 2 2. Performance of M&E 3 3

3. Counterpart funds 5 5 3. Coherence between AWPB & implementation 3 3

4. Compliance with loan covenants 4 3 4. Gender focus 4 4

5. Compliance with procurement 5 4 5. Poverty focus 5 5

6. Quality and timeliness of audits 3 3 6. Effectiveness of targeting approach 5 5

7. Innovation and learning 4 3

B.3 Outputs and outcomes Last Current B.4 Sustainability Last Current

1. Institutional Building 5 4 1. Institution building (organizations, etc.) 5 4

2. Micro Finance 5 3 2. Empowerment 4 4

3. Livelihoods 2 2 3. Quality of beneficiary participation 5 3

4. Women’s and Social Empowerment 4 3 4. Responsiveness of service providers 5 4

5. Physical/financial assets N/A 3 5. Exit strategy (readiness and quality) N/A NR

6. Food security N/A NR 6. Potential for scaling up and replication N/A NR

C. Overall Assessment and Risk Profile Last Current

C 1 Overall implementation progress (Sections B1 and B2) 4 3

C 2 Likelihood of achieving the development objectives (section B 3 and B4) 5 3

C 3 Risks Short description of major risks for each section and their impact on achievement of development objectives and sustainability

Fiduciary aspects

The cumulative disbursement by IFAD against the loan of USD 13 Million stood at USD 0.901 Million (7 %). Low quality audit report; no relation between physical and financial achievement; cumulative achievement of AWPB till 30th September 2009 is 13%; several issues related to non compliance of Loan Agreement



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Project implementation progress

Appointment of Programme Director; low achievement of implementation targets; HR issues unresolved; high number of vacancies at field level and at management level ; Strategic relationship with FNGOs and RNGOs and role clarity to support and promote location offices

Outputs and outcomes Realistic planning and follow up of AWPB; Finalising the M and E plan; development of a MIS; proper coordination between SPMU and districts;

Sustainability N/A

D – Follow up action

Agreed Action Responsibility

Deadline

INSTITUTIONAL BUILDING • Enhance quality of trainings to groups - related to methodology and content.

The methodology should become more participatory. Group exercises and games could be added to the training provided to encourage participation of all. A Chairperson selected for two or three meetings is a way of encouraging participation of all. Trainers should ensure that they train the whole group together and ensure that all participate.

• The content has to be expanded to cope with emerging issues related to livelihoods, wage employment under NREGA, water, heath, sanitation and gender; to help people understand the causes of their poverty, to cope with these problems and to build a strategy and vision for the future.

• The SPMU/RNGOs should be able to hire, if required, the best trainers from outside their institutions.

• Exposure to other projects for middle and field level staff is recommended. • Regular feedback from training conducted by RNGOs/FNGOs should be

obtained and analysed by the SPMU and shared in reports.


Immediate Immediate On going On going Immediate

Adequate training be provided to the 8183 SHGs formed during the past 11-12 months; Refresher courses should be organised for the older and weaker groups.


Mar 10 Continuous

The MIS should capture the purposes of loans; the patterns and trend are to be analysed by the FNGO/RNGOs/SPMU to provide a basis for interventions to promote livelihood strategies


Mar 10

Men and youth to be involved in planning livelihood strategies SPMU + DPMU + RNGOs + FNGOs

Mar 10

The VLCs need to function like a platform of all SHGs in the village. Their rules and functions should be decided by the SHGs not by the project. (The Appraisal does not expect the VLCs to have a Bank account with regular financial transactions)


Immediate

Training of para vets, health workers and para agricultural extension staff to commence

SPMU Dec 09

Basic courses in agriculture to be provided to all staff involved (SPMU,DPMU,RNGOs, NGOs)

SPMU – Livelihoods Manager

Mar 10

Senior Program staff to be provided exposure to projects promoting institutional capacity building of SHGs, micro finance for livelihoods and sustainable federations of SHGs

SPMU – CI & MF

Mar 10

Refresher courses for CMs in specific areas identified by the RNGOs, FNGOs and SPMU

SPMU – CI & MF, RNGOs, FNGOs

Dec 09

RELATIONSHIP BUILDING BETWEEN RNGOS, FNGOS AND SPMU SPMU should engage more with the RNGOs and make monthly plans with the RNGOs for field visits ; feedback to be provided to SPMU that can be incorporated into the overall monitoring of the programe and into the AWP&B and the M&E system

SPMU & RNGO Dec 09

Representatives of the SPMU be present when the RNGOs are imparting training to the communities or at the district level.

SPMU & RNGO Dec 09

RNGOs to upgrade content and methodology. SPMU & RNGO Dec 09 The proposal of the RNGO/FNGOs of the districts to form a consortium to promote livelihoods in place of a new RNGO to be considered

RNGO to take lead with SPMU

Mar 09

LIVELIHOODS



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Senior and Middle staff to be given a sound theoretical understanding of the SHG-Bank Linkage and SGSY Programs

SPMU Mar o9

Both SGSY and SHG Bank Linkage Programes to be used to provide finance An analysis of the purposes of loans given by SHGs to their members to be made on the basis of which livelihood interventions should be planned

FNGO+ DPMU+SPMU

Immediate

Priority to be given to infrastructure for livelihoods including drinking water FNGO+ DPMU+SPMU

Immediate

Government schemes providing infrastructure support to livelihoods should be mobilized on priority

FNGO+ DPMU+SPMU

Immediate

WOMEN’S EMPOWERMENT AND SOCIAL EQUITY Future AWPBs for all components to be more realistically planned so that there is a more concerted effort to building confidence of the women rather than just achieving output targets.

SPMU Jan 10

There is a need to work more on sensitization of both women’s issues, tribal issues and weaker sections of the community for all the staff including the SPMU, DPMU and Location staff.

SPMU +RNGO

Dec 09

The mission recommends that the gender resource book be completed by end December. The CMs need to be facilitated to take it in a culturally sensitive manner to the field. A meeting of all the consultants involved to finalise the book can be called immediately after this mission to ensure its smooth delivery.

SPMU Dec 09

A workshop on the study related to violence against women be immediately carried out.

SPMU Mar 10

Access to potable water be addressed within this AWPB as part of the drudgery reduction initiatives. This can also be linked up with the NREGA

SPMU +DPMU

Mar 10

The livelihoods strategy needs to have a gendered approach; there is a need to involve men in supporting women in their empowerment process.


Immediate

An agenda should be introduced in every group meeting. There should be an emphasis on discussion of NREGA and access of government social security schemes for women in such meetings where a plan of action could be made.


Immediate

PROJECT MANAGEMENT Monthly meetings of Senior staff in the SPMU need to be conducted; RNGOs to be invited.

SPMU Immediate

Monthly meetings at District level with the RNGO, FNGO and other partners need to be held; SPMU staff to be invited.

DPMU Immediate

Quarterly review meetings at SPMU level with DPMU senior staff, RNGOs and 2 FNGOs (on a revolving basis) and with other partners need to be held

SPMU+ DPMU+ RNGO

Immediate

SPMU could request IFAD staff to attend the quarterly review meetings SPMU Quarterly All vacant posts to be filled Immediate Review of salaries and allowances and rationalization of grades and travel allowances to be made before December 2009 and decisions taken.

Dec 09

FNGO reimbursements to be exempted from TDS SPMU Dec 09 Administration delays in approving activities by SPMU which have already been agreed to under the AWPB to be avoided.

Immediate

MONITORING AND EVALUATION There is an immediate need to set up a computerised MIS SPMU Immediate It is imperative that the M&E system incorporates the social evolution of the groups and the members.

SPMU+ RNGO

Immediate

A M&E system needs to be set up immediately with gender sensitive indicators including incorporation of all components of the programme.

SPMU+ RNGO

Immediate

It is also important that qualitative indicators of the social evolution and dynamics of the group be incorporated so as to track the growth of the groups.

SPMU+ RNGO

Immediate

IFAD to support Tejaswini in development of M&E, RIMS and AWPB SPMu to lead + IFAD

Jan 10

KNOWLEDGE MANAGEMENT Training workshop on KM components and developing work plan to be included in the AWPB

SPMU to lead March 2010

Training on KM and M&E linkages for SPMU+DPMU SPMU to lead April-September 2010

Training on communication skills, inter personal skills and material development, photo documentation for location staff

SPMU July 2010

Website for Tejaswini to be created in the next AWP&B SPMU with assistance from IFAD

April 2010 onwards

Translations in English of reports and documents to be sent to IFAD every quarter SPMU Every



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quarter FIDUCIARY ASPECTS Accounting Software : the SPMU must take immediate steps to procure and implement an off the shelf accounting software ( like Tally) at SPMU and DPMU levels. The manufacturer must be asked to provide requisite training and hand holding support during implementation. Parallel manual records must be maintained till the end of this financial year after which manual records may be dispensed with. DPMU Finance Units must be provided with one desktop computer and UPS along with the new software. The additional hardware requirement is budgeted in the AWPB for 2009-10.@ Rs.40000 per location.

SPMU By 31-12-09



Next meeting of EC.

Budgetary Control: There is a need to ensure that proper budgetary control measures are in place throughout the project. Wherever it is felt expedient to deviate from the AWPB, proper sanction must be taken from IFAD for AWPB revision.

M-FARM/ CFO With immediate effect


SPMU By 31-12-09


SPMU By 31-12-09


SPMU By 31-12-09

Procurement : Wherever possible, requirements must be bulked and centralized at the SPMU. IFAD’s procurement guidelines must be followed without exception.


Disbursement : The SPMU must try to avoid part loan cancellation at the MTR stage by speeding up disbursements. This can be done by appointing a full time PD, planning and scheduling activities budgeted in the AWPB and by delegating financial powers both within the SPMU and to DPMUs.





SPMU By 30-4-2010.

Internal Audit : The SPMU must engage the services of professional chartered accountant firm(s0 through a fair and competitive process using the QCBS method to conduct the internal audit of SPMU, DPMUs , FNGOs and SHGs. The internal audit TOR must be finalised in consultation with IFAD’s India Office.

SPMU By 31-12-09. To cover 2009-10 and onwards.

Appendix 2: Progress against previous mission’s recommendations

As on Sep 2009

Sr No Recommendations Responsibility /agreed date

Action taken

Grassroots Institutional

1/ 13 RNGO to provide the required hand holding support to FNGO and to visit the field.

SPMU/ continue

As per the recommendations, training support is being given to FNGOs and their staff. Directions have been issued to RNGOs to visit FNGO locations for handholding support. First phase of the RNGOs visit to FNGO locations would be completed by December 2009.

2/ 13 RNGO also could be involved in designing and organizing the capacity building events & Programmes for the project staff and organizing learning workshop for the FNGO to build and evolve a shared understanding and clarity and implementation

SPMU/ continue

RNGOs are already involved in capacity building events. They take part in location planning meeting and monthly review meeting at district level regularly.

3/ 14 RNGO along with senior team at SPMU needs to undertake exposure visits to successful SHG federation models in the country in Tejaswini programme in Maharashtra

SPMU/ 30th June 09

Done. Two teams of officers, staff, and RNGO/FNGO representatives from Tejaswini Madhya Pradesh visited MAVIM in the month of Sept-Oct 09.

4/ 16 The process could also include & element of self assessment by the FNGO and the location staff with would build ownership and helps in involving them for follow up

SPMU At the time of contract renewal FNGO’s assessed their locations themselves in SPMU's prescribed formats. A detailed assessment was also done by the committee comprise with RNGO, DPM, Finance officer of other district & SPMU Representatives.

5/ 19 Location office needs to device suitable mechanism to monitor and ensure the quality of groups in terms of inclusion of potential poor and focus on covering poorest Device suitable mechanism to monitor inclusion of only potential poor in group.

SPMU/ 30th June 09

Done. Designed a format to identify potential poor in the villages at SPMU level and sent to DPMs vide letter no 847, dated 15.01.2009. Impart trainings to mobilizers on this wealth ranking formats through Module No-9. On 14th July 2009 vied letter no 426, Managing Director/Project Director issued a letter to complete Wealth Ranking Process within the



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time schedule, i.e. July'09. In this letter PD gave clear instruction to create new groups of potential poor. Again on 16th July 2009 MD/PD gave instructions to all DPMs to include those families who are identified in the Wealth Ranking Survey. On 12th Aug 2009 meeting SPMU gave instructions and review the progress of formation of new groups. (Minutes of the 12.08.2009 point no-1)

Sr No No of Groups at the time of last JRM

As on S

1 6542 11263

6/ 20 MVVN make efforts to leverage Resource from the govt. to scale up the programme and structure all the poor in the project village after successful experience and demonstration over next 3-5 year.

SPMU, Continue The corpus fund of MVVN is enhanced by the Government from Rs. 5.00 Crore to Rs. 15.00 Crore, strengthening of some new SHGs is being taken up from this financial year. We are in the process to submit the proposal to expand the project in 8 new district of the state. New project is also under consideration with Government in line of Tejaswinin Programme for the Empowerment of Women in M.P.

7/ 22 A 5-7 days long course can be design especially for the location staff each year at the beginning of the annual plan

SPMU, continue It seems very difficult to retain the location staff for a 5 to 7 days long duration, this year we conduct the courses for 2 to 3 days.

8/ 25 Initiate VLC meetings with groups in consultation with RNGOs and FNGOs.

SPMU/ 30th June 09

Done. Strategy was formulated on formation of VLCs on 06th April 2009 with RNGO and SPMU staff. Workshop on VLC formation and development of module for VLC training was done on 10th & 11th September 2009 at SPMU. Training of all Location Staff has been completed on VLC formation in September 2009. VLC formation is being continued. (Minutes of the 12.08.2009 point no-14)

9/ 25 Effort could be made by FNGO and district teams to make available BPL cards to SHG members

SPMU continue In the different meetings MD wrote to all collectors vide letter no 498, dated 10.08.2009 for better coordination among different line departments and also to prepare BPL cards for



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the SHGs members. SPMU wrote to all Collectors vide letter no 801, dated 18.09.2009 to ensure that every SHG member have Job card for NREGS as well as BPL card.

10/ 26 Programme could develop a suitable strategy for the NREGS implementation with Tejaswini groups in consultation with NGO partners Organize a workshop to evolve the strategy to work with NREGS

SPMU/ 30th June 09

Issue is discussed at various levels to get better support with NREGS scheme. MD instructed to all DPMs on 16.07.2009 to prepare a full proof strategy to get benefits of NREGS. SPMU directed all DPMs in regular monthly meeting (Minutes of the 12.08.2009 point no-12) to ensure Job cards for each SHG member. As an action taken all DPMs have organsied meeting with line departments to get better results. MD wrote to all collectors vide letter no 498, dated 10.08.2009 for better coordination among different line departments. SPMU wrote to all Collectors vide letter no 801, dated 18.09.2009 to ensure that every SHG member have Job card for NREGS. As per DPMs information approximately 65% SHG members are having NREGS Job Cards.

11/ 28 The programme will review its strategy on governance and leadership development in the groups

SPMU/ 30th June 09

As per the opinion from DPMUs, there is no need to change present format of leadership at SHG. These opinions emerged in the meetings held at districts with FNGOs and location staff. (Minutes of the 12.08.2009 point no-13)

12/ 29 Each location need to consolidate and strength the group level process in all the group promoted till date before promoting additional groups

SPMU After the first JRM suggestions the process of SHG formation is viewed again and strategy process of SHG formation wer continued

13/ 31 Project need to consult of all FNGOs & RNGOs and develop clarity on the approach and direction suggested in the AR suiting the context and integrate the same in action plan

SPMU, Continue This action could be taken after a period of time when should SHGs are capable to bear such responsible



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14/ 32 Both non expenditure and over expenditure need to be monitored periodically. Project need to take serious note of these and ensure that all the activities are completed as planned.

SPMU, Continue Project trying to achieve physical and financial code as per the time

Micro finance services

15/ 33 Community mobelizer need to be sensitive to this issue and encourage differential saving to facilitate inclusion of poorest in groups

Matter discussed with FNGOs and DPMs, they suggested the even saving is good to maintain the cohesiveness of SHGs as well as keeping the accounts.

16 / 35 Internal loaning in groups need to be strengthened to enhance the understanding of the members about saving and credit activities and build ownership. Strengthen the inter loaning in groups.

FNGO/ continue

Done. SPMU is continuously following this up issue with field. MD/PD directed in a meeting held at 16th July 2009 to all DPMs to enhance inter-loaning practice in SHGs and to involve FNGOs in this process, point no-4. SPMU reviewed the MIS and gave directions to all DPMs to make efforts to increase inter-loaning practices in the Groups in a meeting held on12 Aug 2009. (Minutes of the 12.08.2009 point no-6). SPMU wrote to district on 28.08.2009 to ensure actions on this issue. Presently total percentage of inter-loaning is 92.3% of total saving.

17/37 Community mobelizers need to verify the books written by book keepers regularly and ensure that the error rectify. The practice of annual auditing of groups by community mobelizers need to be introduced from next financial year. Community mobilizers ensure the maintenance and verification of books

FNGO/ continue

Done. SPMU instructed to all DPMs to identify Group Accountant and impart proper training to them on 16.07.2009. Again this issue was reviewed on 12.08.2009 meeting with DPMs at SPMU (Point No 15, minutes of the meeting). To ensure the proper maintenance and verification of books was given special attention by SPMU and instructed DPMUs to identify and train GAs intensively. At the last visit of JRM total identified GAs were 3057 at the end of Sep'09 total identified GAs are 8323. Out of this 6949 are trained by Community Accountant.

18, 19/38, 40

Building linkages with banks Engage dialogues with banks , organize orientation workshop to promote SHG bank linkages at field district and state level

SPMU/RNGO/ FNGO/Continue

Done. SPMU Tejaswini Programme is focus on Bank linkage and regular dialogue with Banks. DPMs of the districts are now the regular member of District Level Bankers Committee. After getting feedback from DPMs regarding difficulties in opening of bank accounts, this issue was raised at State Level Bankers Committee held on 28th May 2009. SPMU wrote to all DPMs vide letter no 318, dated 1609 to mention names of specific bank and branch where they are facing problems, copy of this letter was sent to DGM Central Bank (lead bank for Madhya Pradesh),



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District Collectors, DDM NABARD and all lead bank managers of the districts. As a follow up SPMU wrote to all DPMs vide letter no 384, 02nd July 2009 to send the information in the given format regarding progress. MD/PD wrote DO to all District Collectors vide letter no 387, dated 3rd July 2009 to get better support from bankers in opening of fresh accounts. Instructed on 16th July 2009 meeting to all programme districts to organize workshop with bankers. MD sent DO to District Collectors vide letter no 500, dated 10 Aug 2009 to organize one day workshop/meeting to sensitize bankers. Again SPMU reviewed the progress on 12th Aug 2009 in a regular meeting with DPMs. Detailed instructions were given in this meeting (Minutes of the 12.08.2009 point no-8) One letter again to district on 26.08.2009. 3247 bank accounts have been opened as on Sep 2009.

20/ 43 It was suggested that the project can explore the possibility of linking the members under the LIC supported Jan Shree Bima Yojna in order to make a beginning initiating micro insurance services for poor

It’s a good suggestion, from next year onwards programme can take this issue with the SHGs.

21/ 44 The pilot on computerization of groups in location needs to be expedited given the scale of groups proposed to be promoted

Computers are already provided to our locations offices. This issue was discussed with MAVIM officers at the time of exposure visit, software developed by DHAN foundation was appreciated by MAVIM, we are planning to get a presentation from DHAN, so that we can purchase.

22/ 45 Annual Work Plan & Budget Preparation and submission of AWPB consultation with NGOs to make them more realistic

SPMU Already done. SPMU consulted with RNGOs/FNGOs and took comments from DPMs on 06th and 7th Feb 2009.

23 Training of staff on SHG bank linkages.

RNGO/FNGO/ continue

This activity is included in training calendar 2009-10, Module for this training is already prepared, reading material will be finalized by Nov'09.

Ms. Neelima Khetan (Project management)

1/9 The project needs to take serious note of it, and come up with ideas on how to strengthen this relationship.

FNGOs are the integral part of the project, we call them in location planning meeting and district monthly review meetings. They are also involved in the training and in monitoring process of the project. We involve them in preparation of modules for different training programmes and exposure



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visit programmes conducted in the Tejaswini. At the time of field visit SPMU officials make close contacts with FNGOs and get their feedback and suggestions on programme related issues.

2/ 11 MVVN to address the issue of TDS and PF for the FNGO staff

SPMU Legal opinion obtained on this issue from two Chartered Accountants and deductions are being made as per Income Tax rules. Provident Fund is the responsibility of FNGOs.

3/ 12 The mission would therefore like to suggest that the initial advance to NGO be for four months, and the reimbursement can than be quarterly.

Project is flexible to provide advances to the FNGOs.

4/ 13 The mission recommends that the amount (Rs. 4,000/- per Location per month) should be revised upward given the need, the role expected and based on discussion with FNGO.

Not possible with the cost table.

5/ 16 The FNGO contracts, need to be reviewed as soon as possible

Contract was reviewed with RNGOs and now it was prepared with realistic target approach.

6/ 18 Need for greater role clarity between the different members at DPMU level. Systematic induction and capacity building of the staff need to be look in order to play their specific role effective

Role clarity orders have been issued.

7/ 19 HR issues especially payment of provident fund to DPMU staff

Other similar programme in the state like DPIP is not paying PF facility to their staff; therefore it is difficult for us to implement this policy.

8/ 21 Mission recommended that to make the RNGO more accountable and involve assessment of their performance and support can be develop by the project unit & FNGO

Contract with the RNGO is for three years, next year assessment could be done.

9/ 24 Community mobelizers can be the staff of FNGO or their emoluments should be brought in the line with the legal requirements

At present CM is employee of FNGO, at this point of time it is very difficult to provide them legal entitlements from programme side, after 4-5 years of programme when SHGs would be capable enough to take the responsibilities, they will be automatically switch over as a federations employee.

10 /25 Revising PIM in consultation with NGOs and translate into Hindi for dissemination

SPMU Translation is going on, most of our staff is not well versed in English therefore revision is possible only after get translated in Hindi.



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11, 12, 13/27

Loan covenants- Timely submission of six month & annual progress report Monitoring & Evaluation plan Appointment of Full time Programme Director

SPMU SPMU SPMU

Continue. Half Yearly Report is attached herewith this mail. Continue. It is under process.

14/ 29 Re-look the procedures on advances to FNGOs and SOE to ensure the proper fund flow and avoid delay.

SPMU All efforts are in practice to expedite the SOE clearance and fund transfer to NGOs.

15/30 Realistic planning and periodic monitoring to ensure the utilization of budgets as per AWPB

SPMU Continue.

16/ 31 Submission of withdrawal application for release of funds from IFAD every HQ

SPMU Withdrawal application up to June 2009 has been submitted to CAAA on 03rd Oct 2009.

17/35 Submission of the audit report SPMU Likely to be submitted by Oct09

18 Strengthening the partnership and investing in capacity building of FNGO relook at the existing support

SPMU FNGO meeting is already conducted at district level as a location planning meeting and monthly review meeting.

19 Concurrence of IFAD on the TOR of the auditor SPMU Done. Audit work is in progress.

Ms. Judith D’souza (Women Empowerment of Social Equity ) 1/ 10 Efforts of SPMU to recruit more women SPMU is making efforts to recruit more women

in programme, selection process is open for all. After our full efforts, programme is unable to get more women candidates for different posts. We have relaxed the selection criteria for Balaghat, Mandla and Dindori but we could not get suitable female candidates.

2/ 12 The SPMU should continue with its capacity building exercises especially with the location center staff

SPMU is providing rigorous training to field staff in different issues.

3/ 13 The mission recommends that the practice be continued to ensure that strategies and interventions in Tejaswini reflects field reality.

Study on Violence against women in the programme has been completed by VISHAKHA and Sangini, Bhopal. We are trying to implement



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their valuable suggestion in our interventions. 4/ 14 Formulization of gender crosscutting groups and to

strengthen and continue the process for the gender mainstreaming

SPMU Formulation of GCCG is in process as well as progress is such issues are also in process.

5/ 16 Integration of gender indicators in M&E system

SPMU It is under process.

6/ 17 Initiate dialogue district and regional level to understand issue related gender concern in each context.

SPMU Continue.

7/ 18 The plan for the next year may be made with a more realistic focus with achievable target

Plan has been prepared with this approach only.

8/ 19 Exposure visit be done immediately to Maharashtra Done. Two teams of officers, staff, and RNGO/FNGO representatives from Tejaswini Madhya Pradesh visited MAVIM in the month of Sept-Oct 09.

9 Provide training and capacity building support on gender for FNGO and field staff at location offices

SPMU Continue. Training on Social Equality and Justice, module no 7 has been completed (Community Mobilizers) Training for Location Coordinators on General and Women Health Issues has been completed (Module no-10) Out of 3 two batches of master trainers are ready. Out of 6 districts, Community Mobilizers of 4 districts have been imparted trainings on General and Women Health Issues.

Appendix 3: Financial: Actual financial performance by financier; Disbursements by category and by component

Financier Approval (USD

‘000)

Disbursements (USD ‘000) Per cent

disbursed

IFAD loan 13000 901 6.93

Co-financier (Banks, NABARD & Beneficiaries)

22800 --- ---

Government (as Advance) 1200 740 61.67

Total 37000 1641 4.43



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Component IFAD loan

Co-financier (Banks & NABARD)

State Government Domestic 1

(Beneficieries) Total

Approval Actual % Approval Actual % Approval Actual % Approval Actual % Approval Actual %

Grass Root Institution Building

4900 432 8.8 --- --- 0 --- --- 0 3000 --- 0 7900 432 5.5

Livelihood & Micro-Enterprises Development

4000 1 0.03 300 --- 0 400 0 0 --- --- 0 4700 1 0

Micro Finance Services 800 0 0 19300 --- 0 --- --- 0 --- --- 0 20100 0 0

Women’s Empowerment & Social Equity

1200 25 2.08 --- --- 0 200 0 0 200 --- 0 1600 25 1.6

Programme Management

2100 443 21.1 --- --- 0 600 16+724 *

3 --- --- 0 2700 1183 44

Total Project Costs

13000 901 6.93 19600 --- 0 1200 740 * 62 3200 --- 0 37000 1641 4.4

Note:- * The Amount Shown in the total project cost in state govt. column refers as Advance and submitted to CAAA for Reimbursement.



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IFAD loan/grant disbursement, comparisons between original and revised allocations and actual disbursement

Category Category description

Original Revised

Disbursement

W/A pending

Balance

Per cent disbursed

% of (5+6+7) against 4

Allocation Allocation IFAD SPMU

1 2 3 4 5 6 7 8 9

I Equipment, Materials 336667 336667 112207 13219 11158 200083 40.57

II NGO’s and Service Providers 2093333 2093333 0 169725 99041

1824567 22.96

III Training 2920000 2920000 43950 29333 6706 2840011 3

IV Community Funds and Grants 283333 283333 0 0 0 283333 -

V Consultants, Studies 436667 436667 30513 6088 1423 398643 8.71

V I Incremental Operating Costs 0 0

(a) Salaries & Allowances 1890000 1443736 154452 72793 35294 1181197 18.19

(b) Operation Maintenance 650000 650000 86552 23972 11029 528447 18.7

V I I Unallocated 640000 193736 - - 0 193736 -

Total 9250000 9250000 639579 315130 164651 8130640 12.1



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Appendix 4: Compliance with Financing Agreement Covenants; Status of implementation

Section Covenant Target/Action Due Date

Compliance Status/Date Remarks

Section 4.02 SPMU to open and maintain a Project Account; GOMP to make an initial deposit.

Project Account Due on 1st receipt of fund from Govt. ((16-03-2007)

16-03-2007 Account No. 63008272809 State Bank of Indore Br. Shivaji Nagar Bhopal, opened on 16-03-2007.

Section 4.02 GOMP to replenish Project Account quarterly in advance

Continuing Continuing Rs 740 lakhs have been disbursed so far by GOMP.

Section 4.03 Procurement of goods, works and services carried out in accordance with the procedures laid down in Schedule 3

Continuing Continuing Yes, Procurement of goods, works and services carried out in accordance with the procedures laid down in Schedule 3

Section 4.04 Insurance of vehicles, equipment and civil works financed from the loan proceeds to be consistent with sound commercial practice.

Continuing Not yet done; said to be done by March, ’09.

Section 4.05, Section 11.10(b)

Audit report submitted to IFAD. 30-09-2009 By 30th September every year

Audit up to 31-3-2008 III Week of Dec. 2008 & Report submitted to IFAD on 30-12-2008

Audit report of 2008-09 was not available at the time of the mission.

Section 4.06 Progress reports to be submitted to IFAD on a quarterly basis.

30-09-2009 June ‘09 Annual report of 2008-09 received but no reports



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Section Covenant Target/Action Due Date

Compliance Status/Date Remarks

beyond that.

Schedule 4,

para 7

AWPB to be submitted to the Fund, for its review and comments

28-02- 2009 1-5-09 The draft AWPB was received 1-5-09

Schedule 4,

para 8(a)

A Mid-Term Review (MTR) to be carried out jointly by the Borrower and IFAD.

First joint review completed on 12-12-2008, Second Review Mission on17-11-09

Schedule 4,

para 16

Project to be exempted from all import duties, excise taxes and value added tax (VAT) on investment expenditures

Tax portion will be borne by State Government



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Appendix 5: Physical progress measured against AWPB and Appraisal targets

Indicators Implementation targets Budget Component/Output/Activity

Corresponding RIMS indicators

Appraisal

(Total)

Planned

(Annual)

Achieved

(Cumulative)

%

Achieved

(Annual)

% Apprais

al (Total)

Planned

(Annual)

Budget

Category

Financier

Spent (Cumula

tive upto Jan.

2009)

% Spent (Annual)

%

(A) (C) (F) (G) (H) (I) (J) K (L) (M) (N) (O) (P) Q (R) (S) No. of persons

receiving project services, No. of women expended existing livelihood activity, No. of women taking up new livelihood activities, No. of women increased access to credit

Component 1 - Purpose:Grassroots Institution Building

Output 1.1:Trainings .

No. of groups formed (new, adopted) 2.No. of VLCs formed 3. No. of fed. Formed.



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Activity 1.1.1.Trg. Of Location Coordinators - 1.Audit process.2.VLC formation, 3.Cluster formation and concept of fedration

No. of LC trained

60 60 54 90.00 133

5.40 1.08 III IFAD 3.77

0.48

Activity 1.1.2.Trg. Of Community Actts. 1.Audit process.2.VLC formation, 3.Cluster formation and concept of fedration

No. of CA trained

60 60 60 100.00 524

2.70 1.08 III IFAD 1.14

1.26

Activity 1.1.3.Trg. Of Community Org. 1.Audit process.2.VLC formation, 3.Cluster formation and concept of fedration 4. SHG vision building

No. of CM trained

600 600 485 80.83 294

54.00 7.20 III IFAD 6.90

2.33

Activity 1.1.4. Bookkeeping training for group acountant/women

No. of person trained

12000 12000

15.00 15.00 III IFAD 0.00

0.00

Activity 1.1.5 Trg. Of Selected SHG leaders/representatives on 1.Group dynamix 2. audit process, 3.VLC formation

No. of woemen trained, No. of VLC taking up social issues

12000 12000

6.00 12.00 III IFAD 0.00

0.00



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Activity 1.1.6 Trg. Of Selected SHG leaders/representatives on Cluster formation and concept of federation

No. of woemen trained

12000 12000

24.00 III IFAD 0.00

0.00

Activity 1.1.6 Study tours (Exposer visit of SPMU/DPMU location staff on best practices area -VLC and federation)

3.00 3.00 III IFAD

0.00

Total Budget Output 1.1.:

36720 36720 599

86.10 63.36

11.81

4.07

Output 1.2 Workshops

Activity 1.2.1 Vision Building

6

5

3.00

III IFAD 0.50

0.05

Activity 1.2.4 State level workshop on VLC vision, cluster formation & Concept of Federation

2

1

1.40 III IFAD 0.00

0.10

Total Budget Output 1.2

3.00 1.40

0.50

0.15

Output 1.3.Equipment & Materials

Activity 1.3.1 Location Office Equipment

60 60 60 100.00 2

48.00 15.00 I IFAD 30.88

0.60



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Activity 1.3.2.SHG Kit Development

12000 4000 8000 66.67 4000

28.00 12.00 I IFAD 13.85

7.28

Activity 1.3.3.Trg. Mat. ( SHG ) Dev./ Location Staff

12000 8000 4000 33.33

8.00 4.00 I IFAD 2.98

0.00

Total Budget Output 1.3

84.00 31.00

47.71

7.88

Output 1.4.Technical Assistance

Activity 1.4.1.NGO Mgt. Cost

440 60 60 13.64 15

330.00 28.80 II IFAD 17.40

6.38

Activity 1.4.2.Resource NGO Cost & Consultancy Support

60 60 15 25.00

27.30 8.00 II IFAD 2.84

0.00

Activity 1.4.3. Computerisation of SHG A/c

60 60 nil

30.00 30.00 I IFAD 0.00

0.00

Total Budget Output 1.4:

387.30 66.80

20.24

6.38

Output 1.5. Salaries

Activity 1.5.1 Location Coordinators

440 60 55 12.50 15

396.00 61.20 II IFAD 34.28

14.62

Activity 1.5.2 community Accountants

440 60 56 12.73 15

264.00 28.80 II IFAD 12.59

5.25

Activity 1.5.3 community Organisers

3680 600 522 14.18 15

1104.00 180.00 II IFAD 58.20

39.81



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Activity 1.5.4 Operating Costs

60

15

528.00 86.40 II IFAD 40.00

19.67

Total Budged out put 1.5

2292.00 356.40

145.07

79.35

Total Budged Component 1

2852.40 518.96

225.33

97.83

Component 2 - Purpose:Women Empowerment & Social Equity

Output 2.1.Gender Integration

Activity 2.1.1 Resource organisation for gender integration

1950

78.00 9.00 II IFAD

0.00

Activity 2.1.2.Staff Gender Sensitisation

No. of location staff trained

1005

780 77.61 25

5.03

III IFAD 4.74

0.31

Activity 2.1.3 State level workshop on gender issue (convension and advocacy)

4

1

1.60 III IFAD

0.04

Capacity building of location staff on gender issue

Activity 2.1.4 Trg. Of location Coordinator on social issues emerging form SHGs

No. of LC trained

60

2.16 III IFAD

0.00

Activity 2.1.5 Trg. Of location Staff on vide range of social issues

No of LS trained

720

15

6.48 III IFAD

0.04



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Activity 2.1.6 Training of all location staff on social justic and equity.

No of LS trained

350

144

3.70 III IFAD

2.20

Activity 2.1.7.Micro- Planning / PRA as part of Base line Survey

6

0.00

18.00

V IFAD 1.46

0.00

Activity 2.1.8 Gender Studies for policy Advocacy & Impact Assesment

3

0.00

7.50

V IFAD

0.00

Activity 2.1.9 Voilence against women study

1

1

0.89 V IFAD

0.88

Activity 2.1.10 panchayat participation of women study

1

1.00 V IFAD

0.00

Activity 2.1.11 social issues study on women

1

1.00 V IFAD

0.00

Activity 2.1.12. Workshops, publications for dissemination & policy advocacy

4 4

0.00

11.00 4.00 III IFAD 2.63

0.00


119.53 29.83

8.83

3.47

Output 2.2.Creating Enabling Environment



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Activity 2.2.1. Social Awareness & promotional programs

19200 2500 nil

192.00 1.20 II IFAD 0.72

0.00

Activity 2.2.1.1 Radio & Communication Program

8

nil

8.00

II IFAD 0.00

0.00

Activity 2.2.1.2. Radio programme

12

6.00 II IFAD

0.00

Activity 2.2.1.3 TV programme

1.50 II IFAD

0.00

Activity 2.2.1.4 Documentry films

2.00 I IFAD

0.00

Activity 2.2.1.5 Need based theme camps

No. of women trained

60

1.80 II IFAD

0.00

Activity 2.2.1.7 Audio visual activity


60

0.60 II IFAD

0.00

Activity 2.2.1.8 Poster/Charts/ pamphlets /exhibition

60

0.60 I IFAD

0.00

Activity 2.2.1.9 Traditional media activity


60

3.60 II IFAD

0.00



of 132

Activity 2.2.1.10 Training of communication skill development SPMU/DPMU staff

2

0.50 III IFAD

0.00

Activity 2.2.1.11 IEC material development

5.00 I IFAD

0.00

Activity 2.2.1.12 Coordination with stakeholders- information sharing workshop, reports, presentations,field visits

0.25 II IFAD

0.00

Activity 2.2.1.13 Cross learning visits for location staff

1

1.00 III IFAD

0.01

Activity 2.2.1.14 Upgradation of website

1.00 II IFAD

0.00

Activity 2.2.1.15 Support to staff welfare /capacity enhancement items - bags

2.16 I IFAD

0.00

Activity 2.2.2 Drudgery reduction investments

No. of villages covered

1680 1000 nil

168.00 12.00 I IFAD 0.00

0.00

Activity 2.2.2.1 State level workshop

1

0.50 III IFAD

0.00



of 132

Activity 2.2.2.2 District level workshop for location staff

2

1.00 III IFAD

0.00

Activity 2.2.3

Activity 2.2.4


368.00 40.71

0.72

0.01

Output 2.3. Enhancing Women's Capacities

No. of womens trained in health/ literacy/ panchayati raj

Activity 2.3.1. Preparing trg. Material for women violence

nil

10.00 3.00 I IFAD

0.00

Activity 2.3.2 Functional Literacy

1800

nil

9.00 1.00 III IFAD

0.00

Activity 2.3.2.1 State level workshop women violence

2

1.20 III IFAD

0.00

Activity 2.3.2.2 Training of traininers- Community Mobilizer on women violence

NO.of CM trained

60

1.08 III IFAD

0.00

Activity 2.3.2.3 Training of location coordinator on women violence

No. of LC tgrained

60

0.54 III IFAD

0.00

Activity 2.3.3 health Education

No. of woemen trained 360

nil

1.80

III IFAD

0.00



of 132

Activity 2.3.3.1 State level workshop health Education

1

1

0.50 III IFAD

0.50

Activity 2.3.3.2 District level training of location coordinator on health Education

60

60

1.08 III IFAD

1.00

Activity 2.3.3.3 Training of Community mobilizer & Community accountant on health Education

660

30

5.94 III IFAD

0.25

Activity 2.3.3.4 Training of of trainner -Community mobilizer on health education

60

60

1.62 III IFAD

0.62

Activity2.3.5 Panchayatraj & Women's participation in governance


360

nil

1.80

III IFAD

0.00

Activity 2.3.5.1 State level workshop on Panchayati Raj

2

1.00 III IFAD

0.00

Activity 2.3.5.2 Trg. Of location coordinator on Panchayati Raj

nil 60

0.54 III IFAD

0.00



of 132

Activity 2.3.5.3 Training of master trainer on Panchayati Raj - Community mobilizer

60

1.08 III IFAD

0.00

Activity 2.3.5.4 Sensitization training to PRI members on Panchayati Raj

1500

7.50 III IFAD

0.00

Activity2.3.6 state level worshop on Gender cross cutting issues with stakeholders

2

1.40 III IFAD

0.00

Activity2.3.7 Development of material on gender

4.00 I IFAD

0.00

Activity2.3.8 Exposer visit of location staff

60

2.00 III IFAD

0.00

Total Budgetout put 2.3

22.60 33.48

0.00

2.37

Total Budget Component 2:

510.13 104.02

9.55

5.85

Component-3 Livelihood & Micro enterprises development

out put 3.1 Livelihood skill Development

No. of women trained in on/off farm activities

Activity 3.1.1-investigation and advice from resource NGO/agency

N/A N/A

4.00 4.00 II IFAD

0.07



of 132

Activity 3.1.2 Awareness raising material-development workshop

1 2 nil

0.00 5.00 2.10 III IFAD

0.00

Activity 3.1.2.1 Procurement of resource material

6.00 I IFAD

0.00

Activity 3.1.3 Awareness raising material-Dissemination

0.60 0.60 III IFAD

0.00

Activity 3.1.4 Livlihood consultancy as needed by PMU/a

84 12

0.00 44.94 10.00 V IFAD

0.00

Activity 3.1.4.1 State level workshop on livlihood options

1

0.60 III IFAD 0.40

0.09

Activity 3.1.4.2 District level Orientation training for Location coordinator

No. of LC trained

60

1.26 III IFAD

0.00

Activity 3.1.4.3 District level Orientation training of community mobilizers

No of CM trained

600

12.60 III IFAD

0.00

Activity 3.1.4.4 Orientation of SHG member


30000

22.50 III IFAD

0.00



of 132

Activity 3.1.6 Beneficiary IGA Field level Training ( resource NGO/agency)

3680

nil

334.88

III IFAD

0.00

Activity 3.1.6.1 Identification of resoruce expert/agency for IGA

10.00 V IFAD

0.00

Activity 3.1.6.2 State level workshop on IGA

1

0.84 III IFAD

0.00

Activity 3.1.6.3 District level workshop with line department and location staff

6

0.30 III IFAD

0.00

Activity 3.1.6.4 Block level workshop

45

2.03 III IFAD

0.00

Activity 3.1.7 Beneficiary IGA Field level Training (project NGO/federation)

8600

nil

146.20

III IFAD

0.00



of 132

Activity 3.1.7.1 IGA training for SHG members

No. of woemen trained

15000

1

45.00 III IFAD

0.03

Activity 3.1.7.2 Exposer visit of tejaswini district staff DPMs/ADPMs

2.50 III IFAD

0.00

Activity 3.1.7.3 Exposer for Location staff experience sharing of similer programms

3.75 III IFAD

0.00

Activity 3.1.8 Training of Trainers

36

11.97

III IFAD

0.00

Total Budget out put 3.1

547.59 124.08

0.40

0.19

Out put 3.2 Enterprises and Market Linkages

Activity 3.2.1 Sub-sector identification srudy

1 1 nil

20.00 20.00 V IFAD

0.00



of 132

Activity 3.2.2 Introductory workshop for Business Plan for DPMs/ADPMS and SPMU staff

1

0.60 III IFAD

0.00

Activity 3.2.3 Orientation training of L.C. at district level

60

0.63 III IFAD

0.00

Activity 3.2.4 Orientation training of All CA and Community mobilisers

660

6.93 III IFAD

0.00


20.00 28.16

0.00

0.00

Out put 3.3 Marketing Support

Activity 3.3.1 Stakeholder Policy Meeting

2

2.50

III IFAD

0.00

Activity 3.3.2 Marketing consultant

45.00 5.00 V IFAD

0.00

Activity 3.3.3 Exposer visit state and district staff for marketing innovations

3.00 III IFAD

0.00

Total Budget output 3.3

47.50 8.00

0.00

0.00

Total Budget Component 3

615.09 160.24

0.40

0.19

Component-4 Micro Finance Services

1. No. of active savers 2. value of saving mobilized. 3. SHGs linked o bank, 4. No. of



of 132

Active borrowers

out put 4.1 Support for SHG Linkages

Incremental Credit

Activity 4.1.1 Incremental Loan to SHGs

Portfolio at risk

8422.40 200.00 IV

Financer 3

0.00

0.00

Total Budget output 4.1

8422.40 200.00

0.00

0.00

Out put 4.2 Training for Normal-Level Groups

Activity 4.2.1 Bank Linkages

10.80

III IFAD

Activity 4.2.2 State level workshop with bankers

1

0.70 III IFAD

0.00

Activity 4.2.3 District level workshop with bankers

6

1

0.38 III IFAD

0.02

Activity 4.2.3 Block level workshop workshop with bankers

45

2.03 III IFAD

0.00



of 132

Activity 4.2.4 Training of location staff on bank linkage

720

2.16 III IFAD

0.00

Activity 4.2.5 Training for SHG representatives/leaders on bank linkage, credit planning and micro insurance

18000

27.00 III IFAD

0.00

Activity 4.2.7 Development and printing of resoursce material

3

1.68 I IFAD

0.00

Activity 4.2.8 Training of location staff on credit planning and micro insurance

720

2.16 III IFAD

0.00

Activity 4.2.9 Development of resource material for SHGs- borcers/pumphlates/poster etc.

4.00 I IFAD

0.00

Activity 4.2.10 Mela of SHG representatives with banks in their service area village/cluster

No. of members trined

36000

10.80 III IFAD

0.00



of 132

Activity 4.2.11 Exposer visit (SPMU/DPMU/location staff and SHG members )

3.00 III IFAD

0.00


10.80 53.90

0.00

0.02

Out put 4.3 Training for very Poor Groups

Activity 4.3.1 very small IGAs/Enterprises

1200

nil

1.20

III IFAD

0.00


1.20 0.00

0.00

0.00

Out put 4.5 Training for Bankers

Activity 4.5.1 Basic Training/Awareness of project/a

6 6 nil

0.00 0.30

III IFAD

0.00


0.30 0.00

0.00

0.00


10127.5

1 253.90

#REF!

0.02

Component-5 Programme Management Unit State Level

Out put 5.1 Equipment and Materials

Activity 5.1.1 Photocopier

2.73



of 132

Activity 5.1.2 Computers Printers with UPS/b

6 4 6 100.00

1.20 2.40 I IFAD+GoMP

4.32

Activity 5.1.3 Lap tops

4 2 3 75.00

1.40 1.00 I

IFAD+GoMP

2.49

Activity 5.1.4 Software

5

1.00 0.50 I

IFAD+GoMP

1.22

0.17

Activity 5.1.5 Laser Printer

2

0.40 I

IFAD+GoMP

0.89

0.00

Activity 5.1.14 Digital Camera

1

0.20 I

IFAD+GoMP

0.00

0.00

Activity 5.1.15 Other Equipment / Office renovation

nil

1

nil 2.70 I IFAD+GoMP

5.26

0.11


3.60 7.20

16.91

0.28

Out put 5.2 TA and Training

Activity 5.2.2 Exposure visits/a

4

1

2.00 3.80 III IFAD 1.56

0.46

Activity 5.2.3 WFDC Institutional Development Study

1 1 nil

5.00

V IFAD 0.00

0.00

Activity 5.2.4 Advt./Recruitment

1

5.00 VI(b) IFAD 25.94

0.24


7.00 8.80

27.50

0.70

Out put 5.3 Salaries and allowances

Activity 5.3.1 Project Director

96 12 6 6.25

0.00 21.12 4.80 VI(a) IFAD 2.64

0.00



of 132

Activity 5.3.2 Community Institutions, Microfinance

96 12 18 18.75 6 50.00 15.36 2.76 VI(a) IFAD 3.54

1.32

Activity 5.3.3 Gender Manager

12 10

6 50.00 15.36 2.76 VI(a) IFAD 2.29

1.32

Activity 5.3.4 Livelihoods Manager

96 12 4 4.17 6 50.00 15.36 2.76 VI(a) IFAD 1.55

1.32

Activity 5.3.5 Finance Manager

96 12 17 17.71 6 50.00 15.36 4.20 VI(a) IFAD 5.32

2.35

Activity 5.3.6 Project Assistants

288 36 57 19.79 18 50.00 20.16 2.88 VI(a) IFAD 3.80

1.44

Activity 5.3.7 Finance Assistants

96 12 16 16.67 6 50.00 6.72 0.96 VI(a) IFAD 1.12

0.48

Activity 5.3.8 Office Help

96 12 16 16.67 6 50.00 2.88 0.42 VI(a) IFAD 0.37

0.04

Activity 5.3.9. Security Services

12

0.00

0.24 VI(b) IFAD 0.00

0.00


112.32 21.78

20.63

8.27

Out put 5.4 Allowances

Activity 5.4.1 Travel Aloowances/b

LS

LS

19.20 4.80 VI(a) IFAD 5.22

1.23


19.20 4.80

5.22

1.23

Out put 5.5 Operating Costs

Activity 5.5.1 Travel Cost/c

23.04 3.00 VI(b)

IFAD+GoMP

0.00

0.00

Activity 5.5.2 Office Maintenance Cost

LS

LS

96.00 12.00 VI(b) IFAD+GoMP

12.65

1.55

Activity 5.5.3 Vehicle hire/d

6

11.52 6.00 VI(b)

IFAD+GoMP

4.56

1.32



of 132

Activity 5.5.4 Equipment operation and maintenace/e

LS

LS

3.00 1.00 VI(b) IFAD+GoMP

0.96

0.29

Activity 5.5.5 Financial Consultancy/Audit fees

LS

5.00 V IFAD+GoMP

0.00


133.56 27.00

18.17

3.16


275.68 69.58

88.43

13.64

Component-6 District Project Management Unit


0.00

Activity 6.2.1 Computers Printers with UPS/b

24 6 12


2.47

0.00

Activity 6.2.2 Software/c

12 6 6


0.89

0.00

Activity 6.2.4 Desks/e

0.12 I

IFAD+GoMP

0.00

0.00

Activity 6.2.5 Chaitrs/f

0.06 I

IFAD+GoMP

0.00

0.00

Activity 6.2.8 LCD Projecter

6

6.00 I

IFAD+GoMP

0.00

0.00

Activity 6.2.12 Digital camera and Other Equipment

6 6 6


1.20

0.03



of 132


11.48 9.48

4.56

0.03

Out put 6.3 Salaries

Activity 6.3.1 District Project Manager

528 72 108 20.45 36 50.00 84.48 16.56 VI(a) IFAD 18.90

7.51

Activity 6.3.2 Finance Officer

528 72 72 13.64 30 41.67 73.92 14.40 VI(a) IFAD 9.76

7.19

Activity 6.3.3 Additional DPM

504 72 54 10.71 33 45.83 23.52 12.24 VI(a) IFAD 5.99

5.52


1056 72 108 10.23 36 50.00 73.92 5.76 VI(a) IFAD 6.66

2.86

Activity 6.3.5 Finance Assistants

528 72 108 20.45 36 50.00 36.96 5.76 VI(a) IFAD 5.41

2.96

Activity 6.3.6 Office Help

528 72 108 20.45 36 50.00 15.84 2.52 VI(a) IFAD 2.32

1.30

Activity 6.3.7 Security Service

72 18

30 41.67

1.44 VI(b) IFAD 0.37

0.60


308.64 58.68

49.41

27.94

Out put 6.4 Allowance

Activity 6.4.1 Travel Allowance/n

LS

LS

31.68 7.20 VI(a) IFAD 9.22

1.58


31.68 7.20

9.22

1.58


Activity 6.5.1 Travel cost/o

LS

21.12 3.00 VI(b)

IFAD+GoMP

0.63

0.00

Activity 6.5.2 Office maintence cost

LS

LS 79.20 10.80 VI(b)

IFAD+GoMP

13.03

4.40



of 132

Activity 6.5.3 Equipment operation and maintence

LS

LS 15.18 1.80 VI(b)

IFAD+GoMP

0.77

0.32

Activity 6.5.4 Vehicle/Fuel Costs for District Staff/p

LS

LS 28.80 14.40 VI(b)

IFAD+GoMP

14.28

5.61


144.30 30.00

28.71

10.33


496.10 105.36

39.88

Component-7 Programme Liaison Unit

Out put 7.1 Equipment and materials

Activity 7.1.1 Computers with UPS

2

2

0.40

I IFAD+GoMP

0.40

0.00


2

0.20

I

IFAD+GoMP

0.00


1

1

0.10

I

IFAD+GoMP

0.00


0.70 0.00

0.40

0.00


Activity 7.2.1 Project Coordination Officer/ Communication Officer

96 12 5 5.21 6 50.00 13.44 1.92 VI(a) IFAD 0.80

0.96


96 12 9 9.38 3 25.00 6.72 0.96 VI(a) IFAD 0.63

0.18


20.16 2.88

1.43

1.14



of 132


Activity 7.3.1 Travel Allowances/a

LS

1.44 0.18 VI(a) IFAD

0.00


1.44 0.18

0.00

0.00


Activity 7.4.1 Travel Costs

1.80 0.24 VI(b)

IFAD+GoMP

0.00

Activity 7.4.2 Office Maintenance Cost

7.20 0.96 VI(b)

IFAD+GoMP

0.00

Activity 7.4.3 Equipment operation and maintenance

0.75 0.10 VI(b)

IFAD+GoMP

0.00


9.75 1.30

0.00

0.00


32.05 4.36

1.83

1.14

Component-8 Monitoring & Evaluation Unit


Activity 8.2.1 Computers with UPS

4

0.80

I IFAD+GoMP

0.80

0.00

Activity 8.2.2 Lap Tops

4

1.40

I

IFAD+GoMP

0.00


8

0.80

I

IFAD+GoMP

0.00


2

0.20

I

IFAD+GoMP

0.00

Total Budget Out put 8.2

3.20 0.00

0.80

0.00



of 132

Out put 8.3 Training

Activity 8.3.1 State level Workshop for MIS

0.20 III IFAD

0.00

Activity 8.3.2 Training for DPMU M&E/MIS staff/b

2

1.00 0.40 III IFAD

0.00

Activity 8.3.3 Training of location staff LC/CA and CM on MIS formats

720

2.16 III IFAD

0.00


1.00 2.76

0.00

0.00

Out Put 8.4 Technical Assistance- Surveys and Reviews

Activity 8.4.1 RIMS/Baseline Survey

3 1 nil

1

15.00 5.00 V IFAD 1.19

3.97

Activity 8.4.2 MIS Development

1 1 nil

5.00 5.00 V IFAD 0.17

0.00

Activity 8.4.8 Communications and reporting

8 1 nil

12.00 1.50 I IFAD 0.00

0.00


32.00 11.50

1.36

3.97




of 132

Activity 8.5.1 M&E/ MIS Manager

96 12 12 12.50 2 16.67 15.36 2.76 VI(a) IFAD 2.18

0.42

Activity 8.5.2 M&E Assistants

192 12 18 9.38 3 25.00 13.44 0.96 VI(a) IFAD 1.14

0.21

Activity 8.5.3 M&E Assistants District Level

528 72 94 17.80 28 38.89 36.96 5.76 VI(a) IFAD 7.10

2.15


65.76 9.48

10.42

2.78


Activity 8.6.1 Travel Allowances/c

LS

LS

9.60 1.20 VI(a) IFAD 0.13

0.10


9.60 1.20

0.13

0.10


Activity 8.7.1 Travel Cost/d

LS

11.52 1.44 VI(b) IFAD

0.00

Activity 8.7.2 Fuel Costs for District M&E Assistants/e

LS

11.52

VI(b) IFAD

0.00

Activity 8.7.3 Equipment operation and maintenance/f

LS

7.08

VI(b) IFAD

0.00

Activity 8.7.4 Communication Materials

LS

3.75 0.25 I IFAD

0.00


33.87 1.69

0.00

0.00


145.43 26.63

6.85

Grand Total 15054

.39 1243.

05 165.40

Appendix 6 : RIMS table

Rims Indicator for Tejaswini Programme-Madhya Pradesh

Country India Report Date

Reporting period:

Sep-09

Project Tejaswini Programme Calendar Year Equiv.: 2009-10 Madhya Pradesh Financial

year end:

Period

ending: PY3

Cumulative

Indicator

Unit level Bench Mark

Midterm End

Anchor Indicators

HHs with improvement in HH assets ownership index

Prevalence of child malnutrition (boys/girls)

Weight for age Height for age Weight for age Component Indicator Unit Indica

tor Level

AWPB Target

Actual achivment

% of AWPB

Appraisl Target

Actual achivment

% of appraisl

Total Project 1. Persons receiving project services (direct, total project, m/f)

Number I st

(total – men/women) (total – men) Number I st



of 132

(total – women) Number I st 180000 142923 79.4 (total – men/women) Number I st 2. No of women who have

expanded existing livelihood activities

Number 1st

3. No of women who have taken up new livelihood activities

Number 1st

4. No of women reporting increased access to credit

Number 1st

Grassroots Institution Building

2. Interest groups formed by type

Number I st

(self-help groups of women, existing ones supported and new ones formed

Number I st

(total – new) Number I st 12000 12000 11263 94 (total – adopted) Number I st (total – new/adopted) Number I st 11263 Village level committees (VLC)

formed Number I st

Federations/other apex institutions

of SHGs formed Number I st

3. Groups meeting regularly,

by type Number 2 nd

(self-help groups, existing ones

supported and new ones formed) Number 2 nd

(total – new) Number 2 nd 12000

(total – adopted) Number 2 nd (total – new/adopted) Number 2 nd VLCs taking up social issues Number 2 nd Federations/apex institutions

providing services Number 2 nd

4. Persons trained, by gender

in SHG/ institution development

Number I st



of 132

(total – men) Number I st 419 (total – women) Number I st 239 (total – men/women) Number I st 658 Livelihood &

Micro Enterprises

Development

5. Livelihhod Enhancement Number I st Persons trained by gender and sector

Number I st

(Dry land agriculture men/women) Number I st (Horticulture men/women) Number I st (Live stock men/women) Number I st (Aqua culture men/women) Number I st 6. Households adopting

improved technology Number 2 nd

(Dry land agriculture men/women) Number 2 nd

(Horticulture men/women) Number 2 nd (Live stock men/women) Number 2 nd (Aqua culture men/women) Number 2 nd 7. Farmers reporting

production/yield increase Number 2 nd

(Dry land agriculture men/women) Number 2 nd (Horticulture men/women) Number 2 nd (Live stock men/women) Number 2 nd (Aqua culture men/women) Number 2 nd 8. Non agricultural livelihood

enhancement Number I st

Persons trained by gender and

sector Number I st

(Skill development-men) Number I st (Skill development-women) Number I st 9. No. of Enterprises promoted

under the project Number 2 nd

No. of Enterprises/IGAs (non

agriculture) established Number 2 nd

No. of Enterprises functioning Number 2 nd



of 132

Micro finance Services

10. Active savers (disaggregated by gender)

Number I st 142675

(total – women) Number I st 142675 11. Value of savings mobilized Number I st 315.29 12. SHGs linked to banks Number 13. Active borrowers

(Disaggregated by gender) Number I st 96089

(incremental borrowers - men

and women) Number I st

(total – women) Number I st 96089 14. Value of gross loan

portfolio (loans outstanding - loans written off)

Number I st

15. Portfolio at risk (outstanding balance of overdue loans)

Number 2 nd

16. No. of project beneficiaries got insurance

Number I st

Women Empowerment

& Social Equity

17 No. of members attending literacy classes

Number I st

No. of women trained in health Number I st No. of women trained in literacy Number I st

No. of women trained in political participation

Number I st

No. of villages with drudgery reduction devices

Number I st

Appendix 8: Audit Log

LOG OF AUDIT OBSERVATIONS

PROJECT NAME - Tejaswini Rural Women Empowerment Programme, M.P. S.NO. Financial

Year Class

serious/General Audit Ref.

Audit Observation

Amount PMU Action Auditor's/Validation Results Implemented/ settled Partially settled

Not implemented/Pending

1- 2007-08 General 1 Deduction of VAT Compliance Settled

Recommendations 1 NGO's Audit by Project Auditors

Compliance Settled

2 2008-09 General 1

TDS Deduction from Contractual staff or obtain form 15 - H

form 15 -H will be obtain in the month of Feb.

2 VAT Deduction At present Deduction are made

Recommendations 1 Internal Audit Within one month

2 Computerisation of A/c's

It is to be done With the MIS Programme

Appendix 9: Supervision mission schedule and person’s met

Date Place Activity Team I Team II Team III Team IV 5th Bhopal Team meets in the evening 6th Bhopal SPMU presentation – 10 AM

Leave for the field - PM

7th - Field Field FM expert to meet all district FMs and representatives of FNGOs at Bhopal

Dindori District – Chandwahi, Pondi Tola Shahpur Location office meeting with staff

Chandwahi, Pondi Tola, Dhura Shahpur Location office meeting with staff

Tikamgarh District – Bamhori Kala Location – Dariapur and Dharampur

8th Field FM expert to meet all district FMs and representatives of FNGOs at Bhopal

Mehandwani location: Kukara, Dulheri

Mehandwani location: Kukara, Dulheri Stakeholders meeting

Budera Location – Budora and Kudyala

9th Field Financial Management expert update MVVN

Meeting with DC and CEO Mohgaon location Katangi gram, Gughri Location

Meeting with DC and CEO Mohgaon location Katangi gram, Gughri Location

Chattarpur District – Badamalahra Location – Phutawari Ishanagar Location – Maheba Bagauta Location staff meeting

10th Field Field Mandla District – Chingridongri

Mandla District – Chingridongri

Stakeholders meeting, Maharajpur Location – Barrohi Rajnagar Location - Sura

Arrival to Chattarpur district

11th Field Field Return to Bhopal

Gajraj, Jantipur, Raigaon

Bamitha Location staff meeting, Ishanagar Location – Sura

Bamitha Location staff meeting, Ishanagar Location – Sura and Lalouni

12th Field Field Report writing and collection of data

Paraswada Palakamathi Ladsada

Report writing and collection of data

Panna district – Powai Location Chaumukha



77

Raipura Location - Jargavan

13th Field Field –entire mission team to leave for Bhopal in the evening


Gorehat Mehkepar


14th + 15th

Bhopal Report writing and collection of data

16th Bhopal Stakeholders meeting – FNGOs, RNGOs and Bankers 17th Bhopal Meeting with PS, WCD 18th Bhopal Meeting with MD and SPMU The mission met with all the project staff in Tejaswini including all the district officers.

Name/Post Organisation Mr Bhorkar District Collector, Dindori Mr M. R . Raghurajan CEO, Zilla Parishad, Tikamgarh Mr. N. Sridharan, Chief Manager SBI, Bhopal Mr. U. N. Tripathi, AGM SIDBI, Bhopal Mr. O. Manoharan CM SLBC Central Bank of IndiaMr. Sanjay Singh Deputy Manager Punjab National Bank, Bhopal Mr. S. K. Sagar Senior Manager Allahabad Bank, Bhopal Mr. R. M. Tiwari SBI, Indore MR. Umesh Rahangdale Apex Bank Mr. Omprakash Tiwari, Programme Manager Mahila Samiti Chhatarpur Mr. Vinay Srivas NGO Chief Chetna Samaj Seva, Panna Mr. Pramod Tiwari Coordinator Anupama Edu. Society, Balaghat Mr. Ramlakhan Tiwari Secretary Jagrati Yuva Manch, Panna Mr. Roshan Bhute, NGO Member Sarda Balaghat Mr. K.S. Rajput District Manager Aisect, Dindori Mr. Sheshram Pandale Location Coordinator Bhaihar Nari Utthan Samiti, Balaghat Mr. K. M. Mishra Accountant Priyavrita Mahila Utthan Samiti, Chhatarpur Mr. Lallan Prasad District Coordinator NWCYD, DindoriMr. Gulab Sarnagat, Secretary Gramin Vikas Mandal, Balaghat Mr. R.S. Viswakarma Coordinator Dronacharya, Dindori Mr. Baliram Thakur BYPASS, Dindori Mr. D. B. Srivastava, Secretary BNNS, Mandla Mr. Rajesh Gupta Darshana Mahila Samiti, Chhatarpur Mr. Anurag Tripathi Location Coordinator Mahila Chetna Manch, Tikamgarh Mr. S. K. Raout, Location Coordinator Vikalp, Tikamgarh Mr. Tanveer Bag, Location Coordinator MVPPS, Tikamgarh Mr. Sams Tareeq Location Coordinator Srijan, Tikamgarh Mr. Rajesh Srivastava Location Coordinator D.A. Tikamgarh Miss Madhu Khetan Pradan Mr. Prabhat Pradan Miss Rashmi Saraswat Mahila Chetna Manch, Bhopal Miss Sunita Srivatava, President Vote, Sagar Miss Kalpana Vyas, Secretary Vote, Sagar Mr. Rajeev Lochan, Secretary Suruat, Bhopal Mr. C. P. Singh, Coordinator MP Livelihood Project, Bhopal Miss Rekha Sharma, Deputy Director Mahila Bal Vikas Mr. Sourav NRHM Miss Tanuja NRHM Miss Snehlata Samavesh



78

Annex I: Technical Report

PROJECT MANAGEMENT AND COMMUNITY INSTITUIONAL BUILDING

Aloysius Fernandes

105. This paper deals with institutions at three levels: a) The State Program

Management Unit (SPMU), b) The District Program Management Units and c) Village based organisations especially the SHGs and VLCs. Supporting the program are the RNGOs and NGOs who are mainly involved in institutional capacity building (ICB), the Line Departments which provide technical support as well as funds for various programs, the Gram Panchayats which provide employment and infrastructure like wells and roads under NREGA and the financial institutions which will play a major role in the future by providing credit for livelihoods. The District Administration plays an important role in promoting convergence; it provides overall co-ordination and supports the DPMU in mobilising resources and services.

106. Overall the village level institutions have progressed well; all the recommendations of the previous JRM have been implemented at this level. The performance of the Districts has also been significant except in one District-Mandla. Much more however is expected from the SPMU to provide the leadership, synergy and motivation required if Tejaswini which is a complex project involving several intervenors and stakeholders is to respond adequately to several challenges which a development program of this type faces from day to day. Most of the FNGOs have performed well but need to strategise for the future. As for the RNGOs, unless the SPMU provides good leadership and an integrated vision, the RNGOs will find it difficult to be as effective as required

The SPMU:

107. Staff: The post of Program Director has been vacant since inception except for a few months. The post of MD of MVVN has been vacant from 16 May 2009. Since then several Officers have had brief stays. The present arrangement where the Deputy Secretary of the Dept.of Women and Children is holding additional charge of the Corporation and is also functioning as Project Director is at best a temporary measure. The Mission was made to understand the difficulty of posting an IAS Officer of 8-10 years experience as Program Director. If the issue of appointing a full time Program Director for two years at least, cannot be resolved, it may be more realistic to post an officer with experience in integrated rural development as full time Managing Director of MVVN who could also function as the Program Director of Tejaswini. Since by far the major program of the MVVN is Tejaswini, this arrangement would in reality serve the purpose of having a full time officer as Program Director of Tejaswini. This change if agreed to needs to get the prior approval of IFAD. Asking the Managing Director of MVVN to hold additional charge as PD of Tejeswani deprives the project of effective leadership.

108. The complex design of Tejaswini which involves several interveners both Government and Non Government requires senior and sustained management. Lack of this during the past 7 months has had a negative impact on project management. The small team of senior officers in the SPMU are doing their best to continue the basic work required and to provide support. Much of the responsibility is being shouldered by the Finance Officers and one or two Senior SPMU staff; but they are constrained to take any program decisions; the present Acting Program Director of Tejeswani who is the MD of MVVN does not provide the needed leadership.



79

109. It is difficult for these senior staff to organise their peers in the present situation. As a result, Team meetings at the SPMU and at the Districts attended by SPMU officers have not been held which has led to a breakdown in communication and loss of learning through sharing. Decisions required to take up training and other programs approved in the AWPB have been delayed. Staff transfer especially in the Finance Departments have not been managed so that the new staff are posted in time for proper taking over of responsibilities. Relations between Project staff and RNGOs/FNGOs which need to be managed in such a way as to get the best through synergies are deteriorating because emerging problems are not addressed in time. Since program activities like trainings even though approved in the AWPB needs SPMU sanction, the absence of a PD has resulted in delays in giving these sanctions thus holding up several programs.

110. There are also other vacancies, which are affecting the MIS and M&E. Two positions a) Manager MIS and b) M&E Assistant need to be filled immediately. Due to the vacancies in these positions, the M& E system has not yet been established. There are presently 9 vacancies at the SPMU level.

111. Another area of concern which will assume importance in the future is the decrease in the number of Livelihood Officers at the SPMU. There is only one Livelihood officer at present. While it may not be necessary to increase the number of officers at the SPMU, it is of critical importance to increase the technical support for livelihoods at District and VLC levels. The Project management plans to recruit an RNGO for Livelihoods as per the Appraisal. However many FNGOs expressed their opinion that recruiting another RNGO may hamper progress, as the new NGO will have to get a grasp of the situation in the field where hundreds of small income generating activities are emerging. But this diversity is not captured – and it will take sometime to do this. The RNGO may end up conducting major studies on a few sub sectors which are already known. Hence the FNGOs had the following alternate proposal.

112. During the meeting with the RNGO and FNGOs of Tikamgarh, the Project’s proposal to recruit an RNGO for livelihood promotion was raised. The RNGO/NGOs suggested an alternate model: A consortium of all the FNGOs and RNGO working in the District. The consortium would promote livelihood activities according to their expertise and experience. For example in Tikamgarh District, the FNGO Srijan could take up Poultry and Agriculture, Vikalp fisheries, Development Alternatives Processed Foods and the RNGO Mahila Chetna Manch dairy and agriculture. This proposal needs to be considered in all Districts where several of the FNGOs have expertise in one or two livelihood activities as it has the advantage of engaging institutions which have already established good rapport with people and which have experience in promoting livelihoods in the area. Meanwhile initiatives for larger sub sector activities including a preliminary study could be undertaken independently especially to add value add scale.

113. Salaries and Allowances: Over-all there is a general and growing dissatisfaction with emoluments especially among the field staff including all the NGOs. The emoluments provided to NGOs need to be revised upwards by at least 30%; they in turn should increase the emoluments to the field staff especially the community mobilisers who are paid Rs.2500/-per month (which is lower than the daily wage rate) and no other allowances, not even for transport. Their salaries are kept low on the assumption that this would make it easier for the Community to pay them after the project ends. While this is a good intention, it is not practical since all the Community Mobilisers and other village staff have been recruited from outside the village and even from outside the area since there were no qualified staff in the village. These staff cannot manage on Rs.2500/ per month and as a result there is high turnover. There are several vacancies at present. The Project is now training local SHG members to be accountants and community mobilisers. This is a practical approach; but it will take time for these local staff to cope with the requirements of



80

the project especially in collecting data which requires experience and at least 10th std pass. The plan to employ local people is often undermined by the increasing amount and sophistication of data required for MIS and M & E purposes. Ironically this data is seldom analysed and used to improve the quality of the program; it mainly serves the organisational requirements of IFAD.

114. In 2007 salary increases were given to SPMU Managers and DPMs, but the recommended annual increments have not materialized. Daily allowances need to be increased. Though it is not possible to agree to all demands from employees, there are some grievances which need to be addressed. Besides a committed Program Director with vision and a mission would be able to listen and counsel the staff and motivate them to get involved in issues faced by the people rather than to spend time discussing their own concerns.

115. Financial Officers who enjoy higher grades than the DPMs in their parent departments are classified as Grade B under the project whereas the DPMs are classified as Grade A. The FNGOs submit expense vouchers which are really reimbursements. In this case TDS is not applicable. Yet the SPMU deducts TDS to err on the side of caution thereby causing the FNGOs a lot of hardship. This has to be addressed. Senior management alone can take decisions in these cases. Hence the gap at the top has to be filled.

116. Loan Covenants: Due to the absence of a project Director there are several non-delayed compliances with the loan covenant. For example i) the AWPB for 2009-10 was submitted for approval to the Fund on 1.5.09 instead of on or before 1-2-09; ii) an information management system which was to be established within 180 days of loan effectiveness has not yet taken off; iii) there has been a delay in appointing auditors; and when they were appointed it was done without prior permission of the Fund; iv) there have been delays in submission of the audit report; the deadline for submission of the present audit report lapsed on 30.9.09 ; v) Vacancies and delayed contracts for the staff have not been addressed; vi) Baseline survey is yet to be finalised; vii)RIMS is yet to take off.

117. District Program management Units: The Districts have carried the program forward especially in promoting convergence with other Government sponsored programs. A summary of these linkages with Government programs is provided under the part on “Convergence” later in this paper. However, since financial powers are centralised at the SPMU, the Districts find that this delays several of their programs, even those which have been approved under the AWPB. The unsettled situation at the SPMU results in further delays. For example, though DPMUs have the powers to approve routine operational expenditure, they require sanction from the SPMU even for planning and executing programs like trainings which have been approved under the AWPB such micro management needs to be avoided by placing more powers with the DPMUs.

118. All the Districts except Mandla have shown good performance in program management. They however need to go beyond just implementing planned programs to analysing outputs and outcomes and solving problems in the project area which impact on the project’s progress. In order to do this DPMs need to hold monthly meetings to which all the FNGOs and the RNGO should be invited along with Government Line Department staff whose areas of responsibility is included on the agenda. Items on the agenda should include analysis of data collected on SHGs loans, quality of trainings, to identify innovations in the field, to identify problems related to various Government programs like NREGA and to work out a strategy to solve them; feedback must be provided to the SPMU and support of the SPMU sought to take up major issues at a higher level. These meetings must be recorded and sent to SPMU for comments. Action required to overcome hurdles and weaknesses should be planned and responsibilities allocated to be fulfilled in a time bound manner.



81

Organisational Management Systems

Financial Management Systems

Organisational

Accountability Norms

Linkages

Learning & Evaluation Efforts

Vision/ Mission

119. The problem of staff turn overs also affecting the Districts. For example the Finance Officers in Dindori and Mandla have been transferred, but the vacancies are not filled. The Post of Finance officer has been vacant in Panna for a long time and the Finance Assistant at Balaghat has not been attending office for two months. These vacancies have a negative impact on Project effectiveness. There are presently about 50 vacancies at the field level.

120. Village Institutions The Progress Report submitted by the SPMU, lists the four key thrusts of Tejaswini. The Mission observed that the first - namely the development of strong and sustainable Self Help groups based on mutual trust and support of their members – has progressed well but needs to be taken to the next level in terms of quality in training, new modules which help all the members to participate effectively, to understand the causes of their poverty and how to address them.

121. The six organisational features which are accepted commonly as critical to the health of any institution are the following:

122. SHGs: The Mission made a brief assessment of the SHGs based on each of these

features

123. Financial management: As regards financial management systems, on the basis of random verification of 2 SHG records per district and subsequent discussions with the Ngo staff, the Mission observed as follows:

• SHG Cash Book, member pass books, savings registers etc. were maintained properly and were updated.

• Loans to members, deposits and withdrawals from banks, repayments etc. were recorded as part of the proceedings.

• Most SHGs had opened bank accounts and bank passbooks were updated.

• SHGs were eager to know how to get loans from banks. The mission found that DPMU staff themselves were unclear about how to proceed.

• SHGs have no fixed maximum limits on cash in hand. They only had minimum limits for the same.

• In some SHGs, loan repayments were delayed for long periods of time.



82

• One community Accountant supervises over 200 SHGs while one Community Mobilizer oversees 10-15 SHGs. The Community Accountant does not meet an SHG more than 3 times a year.

124. Organisational features: These include the degree of social capital, existence of Rules and regulations, conduct of meetings, level of participation, etc. The mission noticed that more work is needed to train group members. There were women who remembered a few discussions only on the basis of the pictorial book. At this juncture, in order to strengthen group dynamics and decision making potential, it is important to constantly relate issues depicted in the pictorial book to real life situations in a proactive and consistent manner. Having completed these modules just once in a period of 8 months may not indicate that the group is conversant with the ability to deal with the situation when it comes their way. Modules related to participation of all, equity, analysis of power relations in society and at home, the role of members as change agents need to be conducted.

125. There is a strong need to conduct refresher courses for the CMs to deal with real life situations in order for them to be able to give the required handholding to the groups. It was also observed in many groups, that women were moving faster than what the CM’s skills could support. Hence there is a need to enhance the skills of the CM and Location Staff to be able to respond adequately to the growing needs the RNGOs need to address this issue.

126. Linkages: The SHGs have taken the initiative to approach the Sarpanch, Gram panchayats, Banks, Government officers for programs. They have come together to form VLCs. Though in most cases the VLCs are too new to be assessed, there are signs that in the older ones, women representatives in the VLC find the VLC useful to lobby for their entitlements.

127. As regards organisational accountability, the Mission observed that the group has changed representatives, that accounts are maintained, that there is transparency in dealings, that sanctions are applied and accepted. But they still have to realise the need to acquire the confidence to invite others to assess them, to ensure that all participate effectively and share equitably in the benefits.

128. The other two features of an institution are still to develop.

129. Village level Committees: The appraisal envisages one VLC in every village consisting of representatives of all SHGs in the village whether formed under Tejaswini or under programs. It does not expect the VLC to have a Bank account with regular financial transaction but rather to function like a platform or forum to take up issues with the Panchayat (the problems faced by NREGA beneficiaries could be one). They would mobilise assistance for housing, ensure that the poor get their entitlements like widows pension, assistance for the disabled etc. and organise health camps. The project management must not therefore promote VLCs as institutions similar to the SHGs. The Mission recommends that the speed with which VLCs have been set up in all villages may be a little too fast. The demand for a VLC needs to come from the SHGs. At present the VLC gives the impression of being a project imposed initiative. The Mission met a few VLCs and was happy to note that they are functioning as platforms as envisaged in the Appraisal. They need to develop their own rules regarding frequency of meetings and take on functions decided by the SHGs, not by the Project management. Facilitation should be done by the Location staff.

130. Support Institutions: RNGOs and NGOs: To implement the first thrust of Tejaswani, namely the development of strong and sustainable SHGs, RNGOs and FNGOs have been selected through a rigorous and transparent process, training material has been developed, 60 Locations have been established and the staff trained to build the institutional capacity of the SHGs. They in turn provide training in financial and organisational functions to the SHGs.



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131. Role of RNGOs: There are two RNGOs. They have played a major role in training field staff in participatory methods and to train SHG Trainers. However most of the NGOs are now capable of doing this on their own, The RNGOs need to focus on the NGOs who are weak in this area of institutional capacity building. Their role should also be reviewed every year so that they are in a position to cope with emerging needs. For example they need to assist the FNGOs to introduce a software in order to capture and analyse SHG data so that the project can develop plans to intervene strategically to support livelihood activities, they can assist to develop training modules for the institutional capacity enhancement of VLCs and of stakeholders at various functional levels and to make periodic assessments to measure efficiency and effectiveness. This will require the RNGOs to be one step ahead of the FNGOs and to recruit staff with new skills to cope with emerging needs. Overall the RNGOs should give particular attention to the weaker NGOs. In order to take up these initiatives, they need guidance and support from the SPMU.

132. Role of FNGOs: The Mission observed the following:

• FNGOs have developed a good rapport with the communities and are able to relate well the SHGs.

• In most cases, the CMS are attending the group meetings and facilitation is done during the meeting proceedings.

• However the resolutions taken by the group are not recorded in many cases including on the internal loans/savings matters.

• Where some resolutions are taken, there is not much evidence of discussions on the resolution. Although this constraint is attributed to limited capacity of the group accountant in recording, but the actual matter is non-existence of such practices.

• SHGs have been given training using the modules detailed in the picture book. • LC, CM and others are also given training in different modules. • The statistics/data is captured, but the analysis is either not done or done in a

very limited way • Livelihood activities have not yet become the priority for most FNGOs although a

few FNGOs have taken a proactive role in this aspect. So, there is a need to focus on developing a comprehensive strategy for on-farm, non-farm activities and for special categories of people FNGOs need to promote convergence, bank linkages and also efficient utilisation of internal lending.

• FNGOs need to be proactive in assessing Government sponsored programmes like NREGA/Kapil dara etc. In many cases people are being deprived of their rights and entitlements; FNGOs need to make people aware of these issues and encourage them to lobby for their rights.

133. Training: Training of FNGOs is an ongoing process. FNGOs need significant input in

the following aspects:

• Understanding the nuances of those schemes that can be sourced/leveraged. • Sound business development planning for their clients • Significant capacity building of ‘Location Staff’ to cope with issues that are

emerging in the SHGs, VLCs & communities. • Communication and negotiation skills for Location Coordinators and Community

Mobilisers for enhanced communication not only at the community level but with bankers and line departments.

• Ability to collect qualitative and quantitative information at various functional levels including from SHGs and community.

• Ability to analyse the qualitative and quantitative data/information and feed the outcome of this analysis into their facilitation processes.

134. Livelihood Strategy - Sources of finance – SHG-Bank and/or SGSY



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135. The Appraisal envisages the entire amount of Rs.84 crores for livelihood support to come from Banks This works out to Rs.14 crores per District or about Rs.3 crores every year between 2010 and 2014. The two major programs providing loans are the SHG-Bank Linkage program which has funds for training the SHGs in institutional capacity building but no subsidies for assets and the SGSY program which has a subsidy for the asset purchased as well as funds for training.

136. The mission recommends that the projects utilizes both the SHG-Bank Linkage Program and the SGSY. The SGSY program cannot cover all the 2000 SHGs formed under Tejaswini in each District; the mission also does not envisage the SHG-Bank Linkage program do so. Discussions with Senior Government and Bank Officers in Tikamgarh and Chattarpur indicated that they are willing to include around 500 SHGs under SGSY over the next three years. Even if the first loan cum grant of Rs.25,000 was provided under SGSY, this would bring into the program around Rs.7.5 crores over 3 years. A beginning has been made in Chattarpur where 11 SHGs have received between Rs.5000 to Rs.6500 amounting to Rs. 57500 from SGSY. In Dindori 158 groups will be graded shortly for linking with SGSY. The second loan cum subsidy under SGSY is a large one and may not be taken by all SHGs. The other 1500 SHGs in each District could be covered under the SHG-Bank Linkage program which is still to take off. The 12,000 SHGs would on a average receive Rs. 70,000 each as loans over 3-4 years if the entire Rs.84 crores is to be utilized. The project needs to develop the absorption capacity of the SHG members to cope with this amount. The first step of opening Bank accounts for 3171 SHGs has been taken. The decision of the Government to pay wages under NREGA through cheques is also helping women to relate with Banks directly.

137. The mission met several Bankers in all the Districts. They are positive as regards lending to SHGs but tend to adopt the same strategy for SGSY and the SHG-Bank Linkage Program. The crucial difference is that under the SHG-Bank Linkage program only one loan is given to the SHG after assessing its institutional capacity according to indicators established by NABARD. The SHG then decides on the purpose and size of loans to members. Thus under the SHG-Bank Linkage program the SHGs are free to lend for any purpose including health, education, food and trading and at whatever size and for any period of time required. Under SGSY, however, while the first loan cum grant of Rs. 25,000 can be used for any purpose by members, the second and major loan is provided to each individual in the group who must submit an individual proposal. Loans are for assets only mainly animal husbandry and are of standard size. No loans can be given for education, health, trading, etc. which people require.

138. In the first stage, the mission recommends that an analysis be made by the FNGOs of the loans taken by SHG group members. The list provided by the Districts shows a diversity of purposes both on and off farm rather than a few large activities. This analysis would help the interventions to focus in providing inputs to use water efficiently through drip irrigation, improve organic content of soils through compost and vermi compost, conserve water through appropriate bunding, construct low cost open wells for protective irrigation, provide basic veterinary care through barefoot veterinarians etc. These activities can be supported through small loans from the SHGs, grants from government programs and peoples contribution in labour. Sub sector activities are larger in scale and have the potential to rise on the value chain. They require more technical and financial support to take off as well as stable market linkages. At least part of the start up funds will have to come as grants if not the full amount. Since there is no provision in the Project’s budget, the mission recommends that a revision be considered during mid-term review to meet this contingency.

139. Convergence: The project design makes it imperative for the management to promote convergence. Banks and financial institutions need to be tapped as indicated above for livelihood credit. Further programs providing employment,



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infrastructure and wells like NREGA, horticulture plants and agricultural inputs, insurance of various types are also required in order to provide support for livelihood activities and reduce risk. The project management at district levels especially has been proactive in mobilising livelihood support activities from various departments. The table below gives a consolidated list of these activities

List of livelihood support activities provided by various Departments

Sl. No.

Dept. Balaghat Dindori Mandla Chhatarpur Tikamgarh Panna Total Ben. SHGs Ben. SHGs Ben. SHGs Ben. SHGs Ben. SHGs Ben. SHGs Ben. SHGs

1. Agri. 123 43 544 93 30 19 32 11 99 45 46 45 775 231

2. Hort. 41 37 3311 360 131 15 10 5 336 300 383 154 3876 871

3. TSS 562 263 1660 - 62 5 - - - - - - 2284 339

4. ICDS/

Insurance Shramik K.Y.,Janam Suraksha Yoj,Ladli Laxmi Yoj.

220 98 - - - - 11 11 151 6 - - 237 115

5. Panchayat: Indira Awas Yojana,CM Kanyadam Yoj, old age pension

576 224 481 59 - - 62 22 79 39 26 25 1145 330

6. Plantation - - 960 40 - - - - - - - - 960 40

7. Social Dev.

- - - - - - - - - - - - - 106

8. Khel & Yuva deptt/-

- - - - - - 38 7 - - - - 38 7

Total 1522 665 6956 552 223 39 153 56 665 390 455 224 9315 2039

140. Almost 10,000 poor people have benefited from these various programs, which is a significant achievement. However the project needs to be pro -active in getting NREGA operational in all the villages. The Mission came across villages where the job cards have been captured, where shoddy work was done; where wages were not paid and where no work has been allocated because the village did not vote for the sarpanch. The VLCs can pay a major role in overcoming these problems,

Physical and Financial progress:

141. It is difficult to relate the financial and physical progress as reported. There is hardly any correlation between the physical and financial achievements. In some cases the financial outlay is proportionately lower than the physical target achieved. In other cases it is much higher. The DPMUs report only actual expenditure. They do not report the actual expenditure against their budgeted expenditure. On enquiry it emerged that the DPMUs were not aware of their budgeted expenditure. In general there is no evidence that the Project management is using the AWPB as an effective management tool. The reporting formats of the SPMUs are different; this created problems for consolidation. The AWPB needs to be drawn up with the active involvement of all senior staff of the SPMU and DPMUs including the FNGOs and RNGOs. In fact the annual work plan should first be discussed at the SHGs and VLCs; the plan should then be prepared at the Location Office in which representatives of VLCs participate. These plans should be consolidated at the District level. Before being sent to the SPMU. However the mission was informed that the planning process is top down.

142. M&E; MIS: A basic M&E system has been developed which is manually operated without the use of software. The IFAD India office had supported the programme via email on formation of a M&E system that reflected the programme needs, in the first quarter of the year, but till date, there was no indication that any kind of M&E system was established. As part of the Loan Agreement, the programme is mandated to form a M&E system 180 days after Loan Effectiveness. But it is more than 3 years and there is still no proper M&E system in the programme to help monitor and manage the programme. The last JRM recommended that a M&E system be established along with gender sensitive indicators. However this has not been complied with.

143. The existing M&E system captures transaction details of the groups like amount collected, inter loaned, number of meetings etc. It also captures discussion of social issues in the field but not the decisions taken on the discussions.

144. The project has developed detailed formats to monitor SHGs.

These formats are useful for the monitoring of the following indicators: • Regularity of meetings • Attendance in meetings • Amount saved, loaned and recovered • Emerging social and equity issues

145. Monthly reports are sent regularly in these specified formats. Additionally, to

monitor SHG processes checklists have been prepared for 03, 06 & 12 month old SHGs Location offices have been equipped with computer systems and other office equipments in December 2008. These computers also be used for the MIS system. The development process of MIS system is likely to be completed within 6 months.



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RECOMMENDATIONS

• Appointment of a full time Project Director • Important vacancies to be filled immediately at both SPMU and district level • Revision of salaries and allowances • Cancellation of deduction of TDS for FNGOs • Establishment of a MIS immediately along with a coherent and robust M&E

system • AWPBs should be made more realistic and submitted to IFAD on time to ensure

timely approval • Timely appointment of auditors and timely implementation of other corporate

requirements of IFAD • Baseline survey to be finalised and RIMS to be implemented immediately • DPMs should be given more power to ensure effective and efficient

implementation of activities at the field level • Project staff need to go beyond just implementing planned programs to analysing

outputs and outcomes and solving problems in the project area which impact on the project’s progress. In order to do this DPMs need to hold monthly meetings to which all the FNGOs and the RNGO should be invited along with Government Line Department staff whose areas of responsibility is included on the agenda.

• Village level institutions need to be taken to the next level of operations through effective and relevant training.

• There is a strong need to conduct refresher courses for the CMs to deal with real life situations in order for them to be able to give the required handholding to the groups.

• Proper strengthening of the VLCs to become platforms to further women’s agency and their right to entitlements

• Review of the role of the RNGOs to be bale to move the project further • FNGOs need to work more coherently on livelihood promotion and assessing

government sponsored programmes • More capacity building is required for the FNGOs to take the groups to the next

level • Project to utelise both SGSY and SHG-Bank linkage programmes to leverage

fiannces for livelihoods • Analysis should be made by FNGOs on the usage of loans by SHG members to

show potential for on-farm and off-farm livelihood activities • SPMU to make a strategy on convergence with banks and other financial

institutions and government programmes and implement it immediately • AWPBs should be utelised as management and monitoring tools by both SPMU

and DPMUs. • There is a need to correlate both financial and physical achievements in the

reporting formats and in the AWPBs. • There is a need to have bottom up planning. The AWPBs should be discussed first

at the SHG level and at the VLC level. There is a strong need for a participatory planning process to be established within the system to ensure that the plans reflect the needs of the community



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MICRO FINANCE AND LIVELIHOODS

BY

HARISH CHOTANI RURAL FINANCE SERVICES SPECIALIST

Executive Summary

Local Institution Building & focus on Vulnerable

146. The mission has noted that 11263 SHGs have been mobilised with 1, 42,923 members and the target of the project is 12,000 SHGs with 1, 80,000 members/ Households that holds 93.8% achievement in the number of SHGs mobilised, and 79.4% outreach of households. SHG mobilisation between November 2008 to September 2009 was 9070 (11 months) which was accomplished by 600 Community Mobilisers in 60 Locations managed by 24 FNGO (one FNGO been dropped recently & locations reallocated to other FNGOs) that computes to 1.4 SHG per month per CM. The MIS reports also capture 49,100 members belonging to ST, 20,869 SC, 65,181 OBC, and 7773 are of other category. The BPL members are 73,790 (51.62%) and caste wise representation of members is – ST 34%, SC 15%, OBC 46%; and others 5%. An analysis of groups by its age shows that >38% of the groups are six months old and approximately 10% are between one to two years age (1123 SHGs). The project has already graded 7981 groups in the 3 months old category and 5252 groups in the six months but less than one year age category. The MIS report indicates that 76% of SHG meetings are as per schedule and members’ attendance is 79%.

Range of Financial Transactions

147. There are 1,42,923 members in 11,263 SHGs with an average of 12 members per group, who hold their meeting on weekly/fortnightly/monthly basis and save a fixed amount as per the group resolution taken at the time of formation. The saving amount varies from group to group but the range is between INR 5 to 10 per week. Total savings as at September 2009 are INR 31,975,231 that equates to an average of INR 2,799 per group. A part of these savings are cash in hand (kept in a lockable metal box provided by the project) and the remaining in the bank. Due to distant location of the bank branch that restricts frequent banking practices, the amount in the cash box varies depending on the loan repayment and loan off take. The project is able to provide savings data by district/location but in this report, the data has been compressed at district level. In the absence of no clear data on the repeat loans, the interpretation is that some borrowers took two or more loans since the total loans computes to 41,273 to 30,357 borrowers. Most of the loans are for the period of two to three months. Interest rate charged by SHGs varies from 1 percent to 3 percent per month.

148. The project design includes accessing financing schemes such as SGSY/NRLM, leveraging individual and group loans by linking with the local commercial banks, insurance products, and remittance service especially for the migrating population, but the project has not yet prepared a clear road map on these services.

149. As per the project appraisal, Village Level Committees (VLCs) is a viable forum for a number of SHGs to deliberate collectively on issues that concern their socio, economic and political lives and take up these issues with the Gram Pancyats and or Jan Panchayat or at block/district level. Agenda of VLC depends on the knowledge base and confidence of the SHG members which at present is still at the



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evolving stage. Therefore, facilitation at SHG level by the Community mobilisers is critical, and the issues emerging at SHGs level would need to be tactfully brought on the VLC forum, and this at present is still at an evolving stage.

150. The project has got two RNGOs –Pradhan and Mahila Chetana Manch (MCM) and they are required to engage in a dual role of mentoring and capacity building and are also holding a portfolio of FNGOs i.e. forming and nurturing SHGs. As FNGO, Pradhan is engaged to mobilise and nurture 1000 SHGs in 5 locations in the Southern districts and MCM to work in 6 locations in the north with 1200 SHGs. As RNGO, the two organisations have given their inputs to SPMU in program planning, developing procedures and systems for SHGs, preparation of training materials, selection of staff for FNGOs, and undertaking a few field visits. The dual role of RNGOs/ FNGO was primarily based on creating role model SHGs However, this objective is yet to be achieved that enable other FNGOs to emulate from. RNGOs have not yet demonstrated their good quality portfolio and the best practices for replication in the programs. They do not have a clear plan on proceeding systematically in institutionalising the processes and procedures for quality program performance and management. Most groups need significant capacity building on these aspects. The confidence level between the RNGOs and SPMU is low that needs considerable attention and the recommendation given in JRM- I still to be fully implemented.

151. Unless, SPMU, DMU and FNGOs proactively and structurally prepare work plans by activity, time lines, resources mapping with identified gaps (financial and no financial), the convergences and leveraging of funds from mainstreamed institutions is not going to yield the desired outcomes and impact. Working in this aspect may be complex, but essential for achieving project goals.

152. The project is yet to evolve a concerted livelihood strategy that attempts step by step approach for improving on the farm based livelihood practices, utilising effectively the local resources such as lac, bamboo, lantana reeds, Seri culture etc, and along side developing market channels in the hinterlands and beyond for reasonable returns on investments.

153. Developing market channels are essential to developing sustainable enterprises in the rural areas, therefore, SPMU with support from market development specialists to explore partnerships with the management of KVIC, local Haats, department of handicrafts, Fair Trade Forum of India (FTFI), MART, Marg Darshak NGO in Lucknow, ACCESS India Pvt limited in Hyderabad and scores of other specialised institutions for developing viable forward linkages.

154. Convergences with the line departments are beginning to take place case by case basis. Unless, SPMU, DMU and FNGOs proactively and structurally prepare work plans by activity, time lines, resources mapping with identified gaps (financial and no financial), the convergences and leveraging of funds from mainstreamed institutions is not going to yield the desired outcomes and impact. Majority of the groups have been formed, holding meetings and undertaking financial transactions, therefore, it is a good timing to take concerted efforts to give impetus to their functioning. Working in this aspect is complex but essential for achieving project goals.

155. The mission has put forth a number of recommendations on developing step by step livelihood strategies, need for markets development to give life to entrepreneurial activities is essential, improve facilitation methods to strengthen groups that have access to information and their abilities to use with confidence, need to forge bank linkages and partnering with MFIs for confidence building and multiple sources of financing. Recommendations are also on improving role of RNGOs and sourcing quality professional services on subject proficiency basis, spare adequate efforts on capacity building and training of project staff at SPMU,



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DMU and among FNGOs. Significant work is needed in institutionalising MIS though with outcomes and impact can be drawn on periodic basis.

156. The project is still having adequate time and financial resources and with strong leadership from top level is essential to capitalising on these opportunities and fulfilling commitments made with IFAD and other stakeholders.

LOCATION AR TARGET ACHIEVEMENT VARIANCE % District 6 6 100 Block 45 45 100 Villages 2781 2781 100 # SHGs 12,000 11,263 93.85 # HH Participating in SHGs

1,80,000 1,42,923 79.40

Source: Project report

II. INTRODUCTION

Purpose of Mission

157. A Joint review mission (JRM) was conducted from 5 to 18 November 2009 and covered the districts of Dindori, Mandla, Balaghat, Panna, Chattarpur, and Tikamgarh of Madhya Pradesh State of India. The mission reviewed the achievements made in the technical, financial and institutional components.

Mission Methodology

158. The Mission members had applied a multi dimensional approach to cover various aspects of rural finance and livelihood enterprise that included the following: (i) visited 15 villages and attended a number of combined SHGs meetings as well as observed the proceedings of five SHG meetings in its meeting format, reviewed the records maintained by SHGs which included group meeting register, passbooks, savings book. A number of SHGs also made introductory presentation to spell out the objectives of their group, amount saved and cash held in the cashbox and in the bank account; (ii) visited a number of livelihood projects; (iii) interacted with FNGOs executives and senior staff, Location Coordinators, Location Accountants; and the Community Mobiilisers; (iv) Meetings were also attended to interact with the districts and blocks staff from the line departments, and the senior staff of NABARD and commercial banks. These meetings were very useful to deliberate on issues such as NREGA, various schemes that the district administration would like to reach out to the people in the villages including Tejaswani project area, and identified subsectors for better cooperation between Tejaswani, line departments, and banks; (vi) the mission team also discussed the roles and functions that the staff at SPMU and DPMU engages in for completing their work responsibilities; (vii) AWPB by components were also reviewed to measure the compliance and discussed issues arising out of various reports that the project team had prepared. The data and the information obtained have been analysed and compared with the field findings to determine the strengths and weaknesses that prevail in the project; (vii) The mission had also held a day long discussion sessions with the FNGOs, RNGOs and the bankers to discuss various issues pertaining to the project including bank linkages. In this process, the finding and recommendations were also shared for building consensus; (viii) On the whole, the mission spent significant time in visiting the districts/blocks/villages, and believes that the



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findings from the drawn samples represent true picture and are as per the assigned ToR.

Acknowledgement

159. The consultant acknowledges the support provided by the staff of SPMU and DMU for sharing the requisite information by means of various discussions held in small and large meeting formats, made available narrative reports and data, power point presentations, and also organised a large meeting represented by FNGOs, RNGOs bankers and government officials. Joint field visits with the senior officer from SPMU, DMU, and a number of staff from FNGOs/RNGOs were also made. Village level discussions with SHGs, VLCs, and village leaders were participatory and very informative. Formal deliberations with line departments, bankers, FNGOs/RNGOs and others were focused and stimulating under the chairmanship of District Commissioner. The team leader of the mission Mr. Allocious Fernandez, Ms. Judith D’souza of IFAD ICO, Mr. Sudhir Muralidharan; and myself made a good team that reviewed the project. The mission also recognises the support of Madam Kamini Chohan of WDC who is also the designated Managing Director of Tejaswani, and Madam Tinu Johi, the Principal Secretary of WDC, for holding the wrap up session. The mission also would like to thank Mr Parsavram for sparing time to discuss issues such as Panchyats,and village level development programs and its relation to Tejaswani project.

III. Situational Review

160. An overall goal of programme is to enable poor women to make use of choices, spaces and opportunities in the economic, social and political spheres for their improved well-being. This would be achieved through four purpose level objectives of:

• Creation of strong and sustainable SHGs, and SHG apex organizations who provide their members with economic and social support;

• Provide access to savings, credit and insurance services, and build up financial security;

• Opportunities for new and improved livelihood opportunities, with enterprises established or

• expanded, market linkages, and support services; and

• Access to functional education and social services, labour-saving infrastructure, and participation in local governance. In addition the programme would aim to support and promote government policies that empower women and develop the capacity of MAVIM and MVVN to improve the livelihoods of poor women.

161. Tejaswani project on ‘Rural Women Empowerment Programme’, MP comprises the following four components to be implemented over the life of the project:

• Grass root Institution Building: support for 12,000 SHGs in MP, together with their federations or other apex organisations.

• Micro-Finance Services: (i) Support for SHG-bank linkages; (ii) Support for MFIs; (iii) Policy dialogue, pilot schemes and action research.

• Livelihoods and Enterprise Development: (i) Livelihood skill development for all SHG members; (ii) Enterprise and market linkages via Business Development Service Centres; (iii) Market and policy support (producer companies, policy dialogue, pilots for new technologies).

• Women’s Empowerment and Social Equity: (i) Gender integration (staff sensitisation, studies, policy advocacy); (ii) Enabling Environment (sensitisation of



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men, para-legal training, drudgery reduction investment); (iii) Enhancing women’s capability (functional literacy, orientation for local government, health, hygiene and child care (including HIV/AIDS), family life education for adolescent boys and girls).

• Programme management: (i) Support for MAVIM and MVVN at state and district levels; (ii) M&E.

Project Background

Livelihood & Micro Enterprise (Component 3)

162. The Programme will support the following activities in this component:

• Improved production methods and market competitiveness;

• Strengthening existing livelihoods as well as introducing new sources of livelihood;

• Forming linkages, collaborating with institutions and working through consolidated production and marketing systems;

• Creation of larger cluster structures to address common needs of procurement, service delivery and markets; and

• The needs of the market should be kept central while identifying livelihood options. At the same time, SHG members will feel more confident in investing loans in sectors where they already have experiences

Microfinance Service (Component 4)

163. The Programme will support the following activities under the Micro-Finance Services component:

• Promotion and strengthening of self help groups to undertake micro finance;

• Creation of location offices and building their capacities in enabling linkages with micro finance service providers;

• Capacity building of self help groups, location office staff, MVVN, NGOs and formal financial institutions;

• Supporting confidence building measures that will enhance SHG-bank linkages;

• Initiating pilots in products and distribution channels – savings, credit, insurance products, remittances, and linking savings with remittance;

• Policy influence through studies, pilots, action research and analysing implementation experiences;

• Providing for start up costs for MFIs to start operations in programme districts

164. The foundation of the local institution is the SHGs who are mobilised through the coordinated efforts of the Location Coordinator (LC) and the Community Mobiliser (MC), Location Accountant (LA), and with necessary support by the respective FNGO and DMU staff. As the SHG begin to hold its periodic meeting (weekly or fortnightly or monthly) it is required to achieve quality cohesion (affinity), develop a greater degree of discipline, and learn necessary systems in managing the activities. SHGs are engaged in savings and internal loans and incrementally achieve the required quality grade essential for linking with the local banks (RRB, and or main bank branches) for accessing CCL and term loans respectively. Since the project does not have direct financial infusion in the form of seed capital /



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enterprise fund, therefore, the linkages with the banks, and local MFIs is critical to promoting economic activities among the project beneficiaries as well as stimulating employment in the villages. The people at large and the selected beneficiaries have been engaging in multiple types of economic activities that may vary by the well being ranking, but wage labour is a common activity among the poor families including forced migration in search of casual job during the lean periods (landless remain dependant).

B. Location and Diversity

165. The project is in six districts and sixty locations (combination of near road and remote villages) with 24 FNGOs (1 FNGO recently removed from partnership). These districts are: Dindori, Mandala, Balaghat, Panna, Chatarpur, and Tikamgargh, in the State of Madhya Pradesh. The selection process also took into account the participation of SC/ST status of communities and excluded those geographical areas already included in the MPRLP and DPIP programs.

166. At the outset, the project also undertook a household survey to select and categorize the beneficiaries by its ethnic and economic status thus families belonging to SC/ST, marginal farmers, and BPL were given the priority in the selection.

C. Status of Outputs and Project Performance, Issues

Local Institution Building & focus on Vulnerable

167. The mission has noted that 11263 SHGs have been mobilised with 1, 42,923 members and the target of the project is 12,000 SHGs with 1, 80,000 members/ Households that holds 93.8% achievement in the number of SHGs mobilised, and 79.4% outreach of households. SHG mobilisation between November 2008 to September 2009 was 9070 (11 months) which was accomplished by 600 Community Mobilisers in 60 Locations managed by 24 FNGO (one FNGO been dropped recently & locations reallocated to other FNGOs) that computes to 1.4 SHG per month per CM. The MIS reports also capture 49,100 members belonging to ST, 20,869 SC, 65,181 OBC, and 7773 are of other category. The BPL members are 73,790 (51.62%) and caste wise representation of members is – ST 34%, SC 15%, OBC 46%; and others 5%. An analysis of groups by its age shows that >38% of the groups are six months old and approximately 10% are between one to two years age (1123 SHGs). The project has already graded 7981 groups in the 3 months old category and 5252 groups in the six months but less than one year age category. The MIS report indicates that 76% of SHG meetings are as per schedule and members’ attendance is 79%. The tables below give details on the over all targets achievement, group age and grading of groups:

TABLE 1 : Project Targets & Achievement

LOCATION AR TARGET ACHIEVEMENT VARIANCE % District 6 6 100 Block 45 45 100 Villages 2781 2781 100 # SHGs 12,000 11,263 93.85 # HH Participating in SHGs

1,80,000 1,42,923 79.40


TABLE 2A: SHGs Age Classification as at Sept 09

District AR Total Up to 3 3 to 6 6 1 Yr



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Target # SHGs

Months Months Months- 1 Yr

to 2 Yr

Dindori 1800 1802 213 333 973 283 Mandla 2000 1265 219 331 583 132 Balghat 2200 2215 429 439 996 351 Panna 2000 1997 195 473 1255 74 Chhatarpur 2000 2006 412 238 1218 138 Tikamgarh 2000 1978 384 668 781 145 Total 12000 11,263 1852 2482 5806 1123 % 16.44 22.03 51.55 9.98 Source: Project report

Table 2B: Quality assessment as at Sept 09

Grading SHGs (6 months include 6 months)

Observations based on Discussions with SHGs & records review

3 Months Old SHGs Graded

7981

Grading is primarily on group procedures and transactions based i.e attendance, time of meeting, other meeting related matters, cash related. There is minor focus on measuring group maturity based on issues deliberated, understood and actions taken e.g. issue related to social life, NREGA, livelihood & other schemes, information for knowledge building, confidence building, Panchyat functioning, basic structure of block and district administration, banks related matters etc. Information access and confidence building are two essential elements for sustainable life at the household and mainstreaming. The grading tool is significantly inadequate on this aspect

6 Months Old SHGs Graded

5252


168. As per the project appraisal, Village Level Committees (VLCs) is a viable forum for a number of SHGs to deliberate collectively on issues that concern their socio, economic and political lives and take up these issues with the Gram Pancyats and or Jan Panchayat or at block/district level. Agenda of VLC depends on the knowledge base and confidence of the SHG members which at present is still at the evolving stage. Therefore, facilitation at SHG level by the Community mobilisers is critical, and the issues emerging at SHGs level would need to be tactfully brought on the VLC forum, and this at present is still at an evolving stage.

169. The project has got two RNGOs –Pradhan and Mahila Chetana Munch (MCM) and they are required to engage in a dual role of mentoring and capacity building and are also holding a portfolio of FNGOs i.e. forming and nurturing SHGs. As FNGO, Pradhan is engaged to mobilise and nurture 1000 SHGs in 5 locations in the Southern districts and MCM to work in 6 locations in the north with 1200 SHGs. As RNGO, the two organisations have given their inputs to SPMU in program planning, developing procedures and systems for SHGs, preparation of training materials, selection of staff for FNGOs, and undertaking a few field visits. Through the interaction with the RNGOs, FNGOs and the project staff, the mission understood



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that the dual role of RNGOs/ FNGO was primarily based on creating role model SHGs i.e. groups members are very active, alert with best systems, and linked with banks for accessing loans etc) so that others in the project can learn from. However, this objective is yet to be achieved that enable other FNGOs to emulate from.

Range of Financial Transactions

170. There are 1,42,923 members in 11,263 SHGs with an average of 12 members per group, who hold their meeting on weekly/fortnightly/monthly basis and save a fixed amount as per the group resolution taken at the time of formation. The saving amount varies from group to group but the range is between INR 5 to 10 per week. Total savings as at September 2009 are INR 31,975,231 that equates to an average of INR 2,799 per group. A part of these savings are cash in hand (kept in a lockable metal box provided by the project) and the remaining in the bank. Due to distant location of the bank branch that restricts frequent banking practices, the amount in the cash box varies depending on the loan repayment and loan off take. All the members feel pride in their savings and attributed to as one of the success of forming the group besides uniting themselves to take control of their lives. Generally the savings are made regularly and if any member (s) is not able to save due to lack of cash, the due amount is deposited upon getting money earned from the wage labour or sale of crop or business. The project is able to provide savings data by district/location but in this report, the data has been compressed at district level. The table given below gives details on the savings by district:

Table 3A: Average SHG Savings as at Sept.09

District # SHGs Amt Saved

Avg. Savings

Dindori 1802 5,045,493 2799.67 Mandla 1265 3,272,587 2586.56 Balghat 2215 6,981,843 2950.34 Panna 1997 4,801,739 2403.61 Chhatarpur 2006 6,744,267 3361.91 Tikamgarh 1978 5,129,302 2593.02 Total 11,263 31,975,231 2798.99


171. Once the mobilisation and basic nurturing of SHGs is put into momentum, the members are required to save and use the saved amount for inter-lending for economic and household use. The mechanism of inter-loaning works based on the amount that the group has been able to mobilise and adjust the demand from one or more members based on the quantum of saved money. The analysis of data shows that of the total saving of INR 31,975,231 only INR 17,032,000 has been inter-loaned among 30,357 members which is 21% of the total membership of 142,923, and only 53% of the saved amount is used in the inter-lending. Although no structured data is made available by the SPMU, but the information gathered during the field visits reveals that the foremost purpose is for health and followed by education, economic activities including purchase of milching animals, buffalos etc, purchase of basic foods especially when there is no wage labour. Inter-loans have also been used to payback of old debt to get their mortgaged jewellery released from the local money lenders.



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172. In the absence of no clear data on the repeat loans, the interpretation is that some borrowers took two or more loans since the total loans computes to 41,273 to 30,357 borrowers. Most of the loans are for the period of two to three months. Interest rate charged by SHGs varies from 1 percent to 3 percent per month. The interest rate charged by the moneylender varies from 5 to 10% per month depending on with or without collateral, but the severe catch in this deal is that even a day old delinquency would cause some percentage loss of the pledged collateral. Upon disaggregating the savings to borrowing data by district, Balgahat district has recorded a 99% utilisation and the district in the north have least borrowing. It is also worth noting that average idle saving amount both cash in box and in the bank are to the tune of 46% and this percentage varies district wise. For details, see data in table 3B and table 3C given below:

Table 3B: SHGs Financial Portfolio as at Sept. 09

District Total # SHGs

Members

SHG Savings

# Loans

# Borrowers

Inter-loan

Loan Outstanding

Dindori 1802 22177

5,045,493

7936

6333 2,919,000 1,209,642

Mandla 1265 15637

3,272,587

5119

3940 2,042,000 1,090,235

Balghat 2215 26933

6,981,843

16637

10102 6908000 2654730

Panna 1997 25983

4,801,739

2774

2441 1,123,000 566,077

Chhatarpur

2006 24939

6,744,267

2982

2634 1,523,000 875,135

Tikamgarh

1978 27254

5,129,302

5825

4907 2,517,000 1,417,121

Total 11,263

142,923

31,975,231

41,273

30,357 17,032,000

7,812,940

Table 3C: Portfolio Ratios as at Sept.09

District Saving to Loan Rotation

Avg. Loan Amt. (Total Loan Amt / total Loans)

Avg. Loan Amt. by Borrower (Total Loan / Total Borrowers)

Loan Amt % Outstanding

% Idle Funds

Dindori 0.58 367.82 460.92 58.56 41.44 Mandla 0.62 398.91 518.27 46.61 43.39 Balghat 0.99 415.22 683.82 61.57 38.43 Panna 0.23 404.83 460.06 49.59 40.41 Chhatarpur 0.23 510.73 578.21 42.54 47.46 Tikamgarh 0.49 432.10 512.94 43.70 46.30 Total 0.53 412.67 561.06 54.13 45.87




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173. Although the project design includes accessing financing schemes such as SGSY/NRLM, leveraging individual and group loans by linking with the local commercial banks, insurance products, and remittance service especially for the migrating population, but the project has not yet prepared a clear road map on these services. During the discussions with SHGs, the mission team observed the demand for larger amount of credit for the economic activities. However, the members could not clearly state as to why the idle funds are not being used for economic activities. Some group members did express fear of borrowing large sums for a several months primarily because of irregular income sources especially in view of prevailing drought and irregular wage labour.

174. The project is yet to take up specific studies, action research, analysing and documenting learning from the field for building strategic direction and corresponding operations plan. The project is suppose to hold workshops with the commercial banks at the state and district level to prepare good ground for linkages key to mainstreaming for sustainable livelihood activities. AWPB show zero percent fund utilisation in microfinance and livelihood components.

175. As per the project appraisal, in third year, the programme would identify a few MFIs in the state or invite MFIs from outside the state, to facilitate alternative financing mechanism for SHGs. To give this activity a conscious effort, there is also an incentive of INR 750 per group built in for the MFI to lend to activate at least 1200 groups. The project also provides for a start up operational costs to MFIs to encourage them promote microfinance products and services. The project is yet to consider such feasible opportunities. In Balaghat, Anupama Education Society has also been operating as MFI within the district and also else where and have received a bulk loan of INR 7.6 millions from the State Bank of India (SBI) of which INR 3.6 has been lent to SHG members outside Tejaswani project. In a meeting with the Chief Manager of Microfinance division of SBI, the mission has noted that SBI will be willing to work out financial instruments suitable for Tejaswani program area.

176. The mission has observed that Tejaswani program has been working with the SHG members and different line departments on a number of activities namely- Crop production, vegetable production, orchards, dug well (Kapil Dhara scheme), farm bunds, toilet sanitations, Ladli Laxmi Yojana (for girl child), social security schemes, Job cards for NREGS; and nominations in the BPL list. The intensity of convergences does vary from district to district e.g. DMU in Dindori is working very actively with the District Collector (also an Ex PD of Tejaswani), and in Balaghat, Pradhan has been engaging Agriculture Technology Management Agency (ATMA).

177. Although data presented in the reports does not give details on the number of beneficiaries benefited in which type of convergence/IGA activity. Similarly, in the IGA, it is not possible to determine which economic category of beneficiaries participated and benefited the most, but the range of IGA activities are in agriculture and horticulture (mainly through ATMA), dairy, goatry, buffalo, food processing, and a few non farm activities. The data also shows that both Dindori and Balaghat in the Southern M.P have demonstrated leadership in pursuing convergences and IGA activities. In the case of IGA, the value generated has been split into two components i.e. amount borrowed from the SHGs, but inter loaning amounts do no show significant loan size in majority cases, and other being beneficiary own contribution. In the absence of clarity on the generated values and the outcomes, it is hard to comprehend the positive effects of both convergences and IGA activities.

178. The project mediation with the government departments on training and exposure has been in the field of agriculture, seri culture, accounting, sewing (3 months training given by youth welfare dept. plus providing INR 5,000 per beneficiary for the sewing machine for start up business). The table below provide the data:



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Table 4A : Snap shot of Convergences Activity #

Beneficiaries # SHGs Apx. Value INR

Generated Convergence 10066 1824 1,87,55,935 IGA Activity 4576 1189 1,73,31,350 Training/Exposure 2646 519 4,41,700

Table 4B : Convergences with Line departments District #

Beneficiaries # SHGs Apx. Value

INR Generated

Balaghat 1718 762 2206670 Tikamgarh 503 177 7426250 Dindori 6960 552 2728965 Mandla 223 39 263900 Chatarpur 207 72 2471500 Panna 455 222 3658650 Total 10066 1824 18755935

Table 4C : IGA Activities by Tejeswani District #

Activities # Beneficiaries

# SHGs Apx. Value INR Generated

Balaghat 26 3724 740 16000300 Tikamgarh 5 42 37 59250 Dindori 9 52 17 107100 Mandla 0 0 0 0 Chatarpur 19 665 328 916300 Panna 16 93 67 248400 Total 75 4576 1189 1,73,31,350

Issues Group nurturing and facilitation

179. The maturity of the groups varies based on a number of factors such as well being ranking of its members, maturity of FNGO, and facilitation capabilities of the Community mobiliser for guiding the group not limited to transactions related activities but essentially on the critical issues that concern their lives in the household and also in their habitat e.g. NREGS, IGA and entrepreneurial opportunities and constrains, accessing government schemes, banks & banking, health & sanitation issues, exclusion and rights, gender equity and violence etc. Whilst the group grading using tools is essential to measure the performance and accordingly adjusting to facilitation processes, but most critical aspects that need attention in grading as well as facilitation are ‘Access to information/knowledge’ and ‘Ability to use knowledge with confidence’. Through the Interaction with various groups, it is observed that most groups need significant capacity building on these aspects. RNGOs have not yet demonstrated their good quality of FNGO portfolio and the best practices for replication in the programs. They do not have a clear plan on proceeding systematically in institutionalising the processes and procedures for quality program performance and management that other FNGOs can learn from.



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Bank Linkages for Livelihoods & Micro Enterprise Development

180. In the project design, the financing of SHGs is primarily linked to banks with significant targets such as up to 90 percent of SHGs to be linked with savings to credit ratio of 1:4 that would mobilise loans to the tune of INR 262 crores. and the incremental funds needed to finance loans to groups will be INR 84 crores. In the current context, the groups are not able to inter loan their savings amount optimally (there is presence of idle funds), there is forced migration at large for want of wage labour, linking groups with SGSY is still at the planning stage (banks in Dindori are in the process of grading 158 groups), banks staff in the local branches do not hold positive view on financing existing entrepreneurial ventures etc. The project is yet to evolve a concerted livelihood strategy that attempts step by step approach for improving on the farm based livelihood practices, utilising effectively the local resources such as lac, bamboo, lantana reeds, Seri culture etc, and along side developing market channels in the hinterlands and beyond for reasonable returns on investments.

Challenges in reaching out to Vulnerable & Poor and systematic tracking of outcomes

181. Heterogeneity in the SHGs is a challenge to lay sound foundation for individual and collective and equitable participation by all members. The mission has observed that present facilitation processes, savings, lending and livelihood instruments and its delivery conduits are not concertedly geared to stimulate their participation to achieving project objectives. Record keeping and tracking systems on savings and inter loaning are inadequate. Following JRM-I recommendation on identification of ‘poor amongst poor’, the project has identified 47,747 families included in the SHGs and another 54,148 still to be included. However, this recommendation is still not complete in its implementation especially in the absence of tracking systems and data to ascertain the types of interventions that the project has been availing to them and its corresponding outcomes. Indeed, this limitation of adequate MIS and tracking system is prevailing in the project.

Convergences & Leveraging

182. Convergences with the line departments are beginning to take place case by case basis. However, the discussions sessions held with the District Administration under the Chairmanship of the District Commissioner were forward looking with high expectation of quality demonstrations by Tejeswani promoted SHGs. Line departments were not very clear on the specific sector/sub sector and the targets to be achieved through convergences. Unless, SPMU, DMU and FNGOs proactively and structurally prepare work plans by activity, time lines, resources mapping with identified gaps (financial and no financial), the convergences and leveraging of funds from mainstreamed institutions is not going to yield the desired outcomes and impact. Working in this aspect is complex but essential for achieving project goals.

Monitoring by SPMU Staff

183. Although the leadership in the project is drawn from various functional levels e.g. SHGs, FNGOs, RNGOs, DMUs, SPMU, and other stakeholders, but the proactive leadership from SPMU would act as stimulant to all and has been looked upon. This leadership can been demonstrated in a number of ways e.g. fill in for technical back stopping, assist in resource mobilisation, planning and consolidation, regular feed back, clarification on project design and policy matter; and provide motivation



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at all times. All this is to be fulfilled through a number of ways and means and one among the most essential is through regular visits to DMU, FNGOs, maintain regular liaison with banks, district /block offices; and field level interaction with the SHGs. The mission has observed that the senior staff at the SPMU is very rarely visiting the districts that resulting in incoherence niggles in the vertical and horizontal hierarchy of the organisational axis. The confidence level between the RNGOs and SPMU is low that needs considerable attention and the recommendation given in JRM I still to be fully implemented.

Key impacts and observations on project intervention

184. The project has already achieved 94% coverage in SHGs; and 79% in terms of household coverage. The groups are beginning to use their saved amount through inter loaning mechanisms for meeting their social and economic needs although the inter-loaning is limited to a few members of SHGs. The mission has noted that members of SHG feel good on saving and building unity among themselves and also feel good to be less dependant on the money lenders and have secured their mortgaged assets using inter loan money. Most members have reported incremental positive changes on the social aspects such as confidence building among women SHG members, education for the children and improvement in the their knowledge/skills that they consider is a good beginning to their changing lives on individual front and in the household, and to some extent in the community.

185. The project has made a good beginning by reaching out to 1824 (10066 members) SHGs though convergence program, 1189 SHGs have gained experience in improved IGA activities (4576 members); and 2646 members of SHGs have been trained/ given exposure in livelihood related activities. In Balaghat, 187 members of SHGs have been engaged in lac production, processing and producing handicraft products that assure an earning of INR 100 per day per member.

E. Project Expenditure and Outlay

186. Apart from spending INR 40,0000 in activity 3.1.4 for ‘Livelihood Consultancy as needed by PMU/ workshop on livelihood design’, the rest of AWPB reflects zero spending in microfinance service component and micro enterprise and livelihood component.

RECOMMENDATIONS

Steps to Building Livelihood

187. (A) As a first step, develop district wise livelihood strategy that takes in to account the prevailing economic activities both in farm and non farm areas, and select appropriate technologies through a collective planning processes with the members of SHGs to ensure higher degree of acceptability and affordable share of their equity (financial & other). Roles and functions of various stakeholders are defined, understood and proactively engaged. The production processes are adequately recorded and analysed for effective knowledge management. The returns/ outputs are it in the form of material production and financial form that are logically measured and appropriated for better management. Preparing a simple value chain by product specific will be useful for rolling out comprehensive planning and management.



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188. (B) In another set of livelihood initiative where certain districts have got unique raw materials and the value of these materials is high either before processing or its value can be enhanced through a set of processes, the livelihood in such cases would require a set of experts who have got greater knowledge and skills in “How To Add Value in design & production” and are able to guide/support in developing market channels for good returns. The type of enterprises that can be pursued are – enhanced lac production and its bi products in Balaghat and Dindori districts, Bamboo and Lantana reeds for handicraft products and utility products in Mandla and Balaghat, medicinal plants and NTFP in the Southern districts, Eco tourism can be developed in the selected districts of North and South, processing of organic ginger, garlic etc in a number of districts. Planning and implementation processes must be engaging the entrepreneurs both individual and groups for greater ownership. Potential stakeholders in this can be National Institute of Design (An IAS officer in Bhopal is holding portfolio responsibility), IIT Mumbai, BDS providers such as RUDI of SEWA, Sahaj in Dahud Gujarat, ASA handicrafts in Mumbai, Ministry of Textile and others.

189. (C) NREGA assures one hundred days of employment to all rural households. FNGOs have facilitated the process of securing job cards for most SHG members’ household, but the ground reality is that significant numbers of members have received employment far below their entitlement both in the past and in the current. SPMU with the help of FNGOs can collect the data on the number of days of employment and payment received and in deficit, and mitigate this process through SHGs/VLC with the local Panchayats/block/district administration. The cash earned through this employment contributes to the l group savings and livelihood of the beneficiaries.

Developing markets for beneficiaries Produce

190. Another significant part of livelihood strategy would need to be focused at developing market channels without which product wise ‘Value Chain’ will be deficient. SPMU with support from market development specialists to explore work with the management of KVIC, local Haats, department of handicrafts, Fair Trade Forum of India (FTFI), MART, Marg Darshak NGO in Lucknow, ACCESS India Pvt limited in Hyderabad and scores of other specialised institutions for developing viable forward linkages. The project can also utilise the professional services of experts in the revised version of SGSY now named as NRLM for those accessing this financing scheme.

Explore Insurance Products

191. SPMU to dialogue with SEWA Insurance, and UPLIFT Mutual in Puna, and other institutions, to learn the range of insurance products and service delivery mechanisms, and contractual deals can be made to out source technical services for developing products and services suitable to Tejaswani beneficiaries. Insurance schemes available with the government for life insurance of beneficiaries and their households including insurance for crops/animals are to be studied by SPMU and FNGOs, and discussed in the SHG meetings;

SHGs Strengthening & Quality

192. Facilitation processes and capacity building for quality improvement of SHGs is to be done based on the issues that concern the most for their own life and the lives of their households e.g. migration, potable water, health & sanitation, education for all children, infrastructure development key to economic activities, difficulties faced in accessing various schemes including NREGS, problems in opening bank accounts, harassment in getting access to NTFP, violence in the household etc. The knowledge and communication skills of Location Coordinators and Community Mobilisers are to be upgraded significantly;



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RNGOs/Professional services

Role of RNGOs and other consulting professionals is needed in systems development and strengthening of SHGs, structure & systems and capacity development for SPMU/DMU and for FNGOs, awareness creation among the program stakeholders, and periodic assessment to measure the efficiency and effectiveness of the program. These roles by RNGOs and consulting professionals need to be reviewed carefully by the SPMU with support from DMU and FNGOs, and any adjustments deemed necessary be made well in time for better efficiency and effectiveness. Following are recommended: (1) Identify RNGOs/ consulting professionals by their specialization e.g. Livelihood strategy development and business planning, Markets development; technical support in policy and advocacy; and for periodic reviews/performance assessment; (2) Periodically, Pradhan conducts livelihood training program for their own staff in Kesla, M.P. SPMU can explore if customised training programs can be conducted for Tejaswani staff and the staff of FNGOs to enhance capacity

A. Developing mechanisms for financing of livelihoods through Bank Linkages & MFIs

193. SPMU to take proactive role in developing linkages with the banks through a number of ways – (i) holding consultative forum in Bhopal with the senior management; (ii) getting bank orders issued from Bhopal to their branches in the district for affording priority to financing Tejaswani beneficiaries and providing a copy of the letter to DMU for necessary follow ups; (iii) SPMU, DMU and District Collector to hold periodic consultative and review forums at the district level to assess progress made in linkages and difficulties experienced; (iv) hold awareness seminars/discussions forums with the bank staff and arrange for their field exposure.

194. B. On another effort, SPMU to identify MFIs, preferably from their current FNGO partnerships and subsequently from other sources within the state or beyond. Organisation like Anupama Education Society an NGO and MFI which is also a FNGO partner of Tejaswani, can be considered as microfinance service provider in Balaghat district. Working with a number of MFIs to provide suitable financial services is likely to develop favourable environment for banks to opt of providing bulk finance to these MFIs for retailing, and or finance Tejaswani beneficiaries directly.

Capacity Building/Training

195. In the points above, some related capacity building have been identified, but as the program achieves degree of excellence, the need for training/ capacity building of FNGO staff becomes essential and remains as an ongoing process that needs to be fulfilled using multiple methods depending on the subject matter. Based on the field observations and discussions with the FNGOs/RNGOs significant input are needed in the following:

• Field staff to know various schemes that are relevant to the beneficiaries, and also learn the skills to transfer the information and facilitate the process for accessing these schemes

• Skills in developing quick and practical business plans that the beneficiaries are able to manage, and the line departments/banks/MFIs are able to finance

• Upgrad significantly the communication and negotiation skills of Location Coordinators and Community Mobilisers for enhanced communication not only



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at the community level but also with bankers, line departments, and others in the markets

• FNGO staff has the ability to analyze the qualitative and quantitative data/information to measure the outcomes, prepare good reports, and use the information in their facilitation processes

Management Information Systems (MIS)

196. Log frame is the first point of structuring the MIS. The MIS must be based on – Out Put – Out Come – Impact Indicator. These measurable indicators have been drawn from the log frame and these indicators can be reviewed based on the experience gained and the needs arisen. Finalising the base line is essential to determine scientifically the socio-economic status of the beneficiaries which will also assist in setting up strategies and selection of interventions to achieve quality in the lives of people. The capacity building of ‘Location Staff’ would be essential since they are in the front line for collecting field data.



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Table 5: Log frame indicator on Microfinance & Livelihood components Measurable Indicators

Micro-Finance Services

Women access savings, credit and insurance services, and build up financial security. Programme results in policy changes by banks and other financial institutions.

No. SHG with acceptable financial performance – recovery rate (portfolio at risk) etc. �� Recovery rate for SHG loans to members �� Recovery rate for bank & MFI loans to SHGs �� Value of SHG net worth; �� Policy changes by banks, MFIs and insurance companies

Livelihood and enterprise development

Women get opportunities for new and improved livelihood opportunities, establish or expand enterprises. New types of linkages developed between SHGs, markets and support services. Reformed policies and regulations relating to women’s enterprises and marketing.

No. of individual enterprises established / expanded �� No. of group enterprises established / expanded �� No. of cluster level enterprises established �� Employment and self-employment created �� Quantities of high value crops produced and marketed; �� Quantities of livestock/fish products produced and marketed �� Quantities of non-farm products produced and marketed �� No. of forward and backward linkages established



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Table 6: Summary of Recommendations Agreed action Responsibility Timing 1. Develop livelihood strategy sector/subsector and by district specific, and connect with the different schemes managed by line, NABARD, banks , and others active operators in the markets

SPMU/DMU/FNGO with support of external professionals

Urgent by February 2010

2. Facilitation processes to be based on the socio economic and political issues being confronted by the SHGs, and VLC to enhance the knowledge, skills and confidence

Project Team, RNGOs & FNGOs

Immediate

3. Develop markets channels by working with key market operators

SPMU/Resourced professionals

Urgent

4. Roles of RNGOs need to be reviewed carefully and emphasis is to be given in selecting and contracting RNGOs that demonstrate role model and enhance capacities in the project

SPMU/ICO IFAD January 2010

5. Capacity enhancement of ‘Location Staff’, staff at DMU and SPMU.

SPMU/RNGOs/Out sourced professionals

On going

6. Build partnerships with the commercial banks and develop partnerships with MFIs willing to provide retail financing to members of SHGs for individual and group entrepreneurial activities

SPMU/Banks/DMU/Banks Urgent

7. Design and develop MIS and good monitoring stems

SPMU/ICO IFAD Immediate

8. Finalising the baseline is important so that periodic data analysed can be compared as an acid test to measure the change

SPMU/AFC Urgent

V. WAY FORWARD

197. The project is still left with six more years and the work thus far accomplished

especially at the local level institutions building is a good base to take on systematically by mixing and matching the resources and engaging various stakeholders. There is an urgent need for strong leadership from the top to capitalising on these opportunities and fulfilling commitments made with IFAD and other stakeholders.

198. Strengthening existing and building new linkages with government department is essential to engaging government departments and using various government schemes for harnessing better outcomes and impact as well as setting up favourable trends for further replications to other blocks and villages in the state.



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District level stakeholders including FNGOs are supportive of the project and believe that the lives of people in the villages can be improved step by step.

199. A Japanese management guru Prof. Kenichi Ohmae has rightly described the preparation for a sustainable change in the following words:

“It is hard to let old beliefs go…we are comfortable with them and have spent years building systems and developing habits and depend on them. Like a man who has worn eye glasses so long that he forgets he has them on, we forget that world looks to us the way it does because we have become used to seeing it that way through a set of lenses. Today, however, we need lenses. And we need to throw the old ones away.”



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WOMEN’S EMPOWERMENT AND SOCIAL EQUITY

JUDITH D’SOUZA, ISS - IFAD

INTRODUCTION Purpose of the Mission 200. The Second Joint Review Mission visited Madhya Pradesh from 6th to 17th

November 2009 to assess the implementation progress made by the SPMU on the Tejaswini Rural Women’s Empowerment Programme, Madhya Pradesh. The mission visited 2 tribal districts and held discussions with the staff of the Project Management Unit, District Management Units, Self Help Groups, Location Centre staff and the District Collector of Dindori.

Mission Methodology 201. The Mission member made visits to remote locations where the project is

operational to interact with the project staff and Self Help Groups, reviewed existing documents and visited specific initiatives of the projects. Meetings with various stakeholders like FNGOs, RNGOs, banks and Line Departments also helped in framing the observations and recommendations for this component.

Acknowledgement 202. The ISS acknowledges the hospitality of the project staff and community members

in enabling the visits. She extends warm gratitude to the Community Mobilisers who have shown much dedication and commitment to the programme.

MISSION ACTIVITIES AND PURPOSES

203. The Mission was to review the activities of the SPMU in relation to the Women’s Empowerment and Social Equity Component from both the perspective of the progress of the last mission held in December 2008 and in the forthcoming event of the Mid Term Review which is scheduled to be held mid 2010.

Overall performance: 204. Overall, the progress of this component from the previous JRM till date could be

much better. There has been little done in this component apart from trainings for the location staff and one study on violence against women. This is a serious issue to consider as firstly, this is a women’s empowerment programme in a state that has recorded among the lowest levels of gender equality in the Human Development Index of the country and secondly, due to the non implementation of the planned activities, the movement of building up of the confidence levels of decision making potential of the women has not been adequately addressed in a systematic and coherent manner.

205. The total budget for the year 2009-10 is 104.02 lakhs out of which only 5.85 lakhs has been utelised till 30th September 2009. The expenditure for 2008 – 2009 was 18.80 lakhs (21.43%) as against planned Rs 87.71 lakhs. The cumulative expenditure from July 2007 for this component was 18.80 lakhs which is 4.35% till 31st March 2009. It is strongly recommended that this component be more realistically planned in the coming years so that the variance between what is planned and what is achieved maybe lessened.

Women’s Drudgery Reduction:



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206. As per the recommendations of the previous JRM, the issue of women’s drudgery reduction was to be taken up with a strong focus this year. Women’s drudgery reduction has been deliberated at the district level and proposals were received by the SPMU. A survey form, rather than gender analysis of work, was carried out in all the districts through the CMs on drudgery issues, gender issues etc. The programme gives a fund of Rs 10,000 per village where this can be utelised along with community contribution to address this issue.

207. In most cases, the issue related to water has been identified in many of the districts. There have been proposals for mainly repair of hand pumps, concrete flooring near wells, reconstruction of the walls of drinking water wells, drainage near hand pumps and wells, drinking water troughs for animals near wells. The district of Dindori has seen a focus on mud roads for access to schools and markets as the women felt these were the more pressing demands to decrease their burden in travel.

208. The programme has contracted the Rural Engineering Services of the PHE to carry out these tasks. The work is still yet to be carried out. At the stakeholders meeting with the FNGOs, there was a mention that as the work was through the RES, implementation was getting slow and there was not much on the field. However, the mission came across instances where collection of potable water in the northern districts was the main issue in increasing the drudgery of the women. This has not been looked at in addressing drudgery reduction.

• In determining drudgery reduction interventions, it is very important to analyse

both practical and productive needs of the women. Although decision makers may view their energy-related choices as gender neutral, men and women are affected differently by energy policies wherever their home, work, and community roles differ. Thus it becomes all the more important that choices need to be made by the women themselves on proper analysis of how they will accrue from the benefits.

• The SPMU may look more in detail to the finer details of the proposals that have come. There is a good opportunity for the SPMU to utelise NREGA to build water harvesting structures for the villages so that accessibility of water may be addressed.

• The SPMU may also look at some kind of low cost technology that would eventually also double up as an income generating activity like mills, threshers etc that women can run by themselves. Low cost agriculture equipment available by most of the agriculture universities are available that could also be tapped. Fuel wood efficiency technology could also be included in the package of addressing women’s drudgery reduction.

• The SPMU may need to finalise along with the District Managers and Location staff, the methodology they would like to pursue in identifying beneficiaries especially when it is individual based reduction initiatives. As this will be part grant and part contribution, the implementation of this must be well planned out.

Gender Cross Cutting Group 209. As noted in the Appraisal Report, the Gender Cross Cutting Group serves to help

direct the project to address gender issues in a sensitive and meaningful manner in order to support the social and cultural empowerment of women in the operational areas. The group was envisaged as having a few people who would be deputed by a large organisation working on women’s issues. It was felt by the SPMU that a multi-disciplinary group from several large national and state level organizations should be involved along with representatives from the line ministries in the state.

210. However, it is seen 2 years and more on since the date of effectiveness, this group is yet to be formalised. There were, however, a series of meetings of this Gender Cross Cutting Group where they have provided their support in the training manuals. A meeting was conducted during the mission where the Gender Manager



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was unable to attend as she was in the field. The mission would like to request the management staff to refrain from carrying out meetings with stakeholders during the course of the mission in future. It has come to the notice of the mission that many of the resource persons on this committee have not been reimbursed their costs for the past 5 months. It is strongly recommended by the mission that this issue be looked at immediately so that Tejaswini does not lose out on the support of this group to help mainstream gender and their own credibility.

211. The Gender Cross Cutting Group has in collaboration with the SPMU, DPMU, RNGOs and FNGOs developed a gender strategy for the programme. The main issues identified for work are: accessing social security schemes for the vulnerable women (widows, single women headed households, ultra poor women); women’s participation in political arenas like gram sabhas and increased women’s representation in such bodies; literacy for tribal women; and overall legal literacy for women. The group has advised the programme unit not to address all issues at one go in all districts at the same time but to have specific interventions in districts with relevant issues.

• There is an urgent need to formalize the group at the earliest so that the group can

carry out the prerequisites for the programme. • There is also a need to look at the main purpose of the group as envisaged in the

Appraisal Report. This group is to help direct the programme in addressing the gender concerns of the communities. This group is also to help build up the gender strategy for the programme.

Knowledge Products and studies:

212. There has been planned a number of knowledge products to build into the overall gender awareness strategy for the community. A resource book on gender related issues was in the making from March 2009, but has been stalled due to administrative issues. A diary was also planned for the community mobilisers to document the social issues that emerged in the group meetings and to track the actions taken. This diary is scheduled to be distributed to the Location staff this month. An interesting study on violence against women was carried out by Vishaka and Sangini to build the material for the resource book on tackling violence against women in the programme. However, further work on this resource material is still pending due to administrative delays.

• There is a need to have a clear vision of the cross cutting issues of gender and

Knowledge Management and how they need to fit into the overall programme and contribute to the target population.

• There will need to have more coordination between the KM and Gender focal points as there is a lot of over lapping on KM products in the programme.

• The ANT (The Action Northeast Trust www.theant.org) has come up with a diary for community mobilisers based on common health problems that people face and what to do to address them. There are many such innovations around the country from organisations working on similar issues of empowerment through publications and materials and the project may like to look at them.

Social evolution of the group and M&E –

213. It was seen that in most of the groups visited, women were taking a pro active role in discussing issues related to health, education, livelihoods, water etc. Through the records, one gets to see the many different social issues that the group is discussing. However in most cases, the decisions are yet to feature in the records. The women felt that the group allowed them a space to express their opinion, to learn to take decisions and to discuss issues among themselves. In a few



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instances, the women spoke about taking up social issues and addressing them at the community level. The Tejaswini Baiga Samiti spoke about organizing themselves to protest against the mining of sand near the river. However, the SPMU may need to look at the issue of the groups having their caste name tagged onto their group name. This may not be the best solution for inclusion and may need adequate sensitization of the FNGOs to weaker sections of the society.

214. The women also expressed the fact that they had stopped taking petty loans from the sowkars but are now utelising their own accumulated resources to pay off high cost debts. However, for larger loans, they still resort to the sowkar. In a few groups interacted with, some of the women were uncertain of the amount of money they had saved in the group. Fetching potable water seems to be the big problem in the areas visited by the mission. It was seen that in chanwahi village the women had to walk about 1 ½ km to fetch potable water.

215. The M&E system has been able to track the number of times the discussion on social issues took place but is yet to track the decisions taken. There is still a need to set up a coherent M&E which is gender sensitive. The GCCG have come up with a survey that would be carried out every 2-3 years to document the changes and impacts of the programme on the women. This is a good impact study to do but however it still important that the M&E system be made gender sensitive. There is a need to see how the interventions of the programme are being benefited by the women in terms of social, political and cultural empowerment. The M&E system also gives insights into whether the intervention is having the intended outcome or not so that the project can make mid way adjustments. The project can take a look at the IFAD M&E guide that is available at : http://www.ifad.org/evaluation/guide/. The M&E also needs to belinked to the Logframe of the programme.

Women panchayat member 216. The mission interacted with few women who were elected to the Panchayat in the

course of the group and VLC meetings. It was not visible somehow of the potential of the opportunity of being part of the local governance system was being effectively utelised. There is great potential in working with such women who are part of the system in promoting the rights of women under this programme. As the aim of the platform is to include all women in the village into the fold so that there is a ripple effect of community organizing for change and development, there is a need to strategise the process to be involved in this synergizing.

• As the panchayat elections are nearby, the project could look at rigorous

sensitization and awareness generation of the women to participate in the elections by standing for the post of Sarpanch and having all the women who are part of the programme to vote for this person. The project could also utelise this opportunity to build awareness of the PRI among the women.

• There is also great potential in having these panchayat women members in the VLCs as they can be the stepping stone for linking the VLCs to the Panchayats. As the VLCs evolve there will be a need to have an agenda. One of the responsibilities of the VLC could be to link women to the different women related government schemes that are available for the target community. They could also be effectively used to monitor NREGA in the villages.

Social issues discussion in the group meetings: 217. With some of the groups that have crossed about a year, one can see a sense of

maturity in their discussions and deliberations during the meetings that the mission was part of. Women are discussing issues that are integral to their life, their livelihoods, government schemes, children’s education, water etc. Though in many cases, the discussion was dominated by a few women with little involvement of the



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others. In meetings where the Community Accountant is present, it is seen that they dominate the meeting proceedings. Records are maintained properly but it was difficult to see what the decisions were emanating from the discussions that revolved around social issues. According to the RNGOs, the duration of the group meetings were substantially reduced with only financial transactions discussions taking place as the meetings tend to go longer than an hour.

218. The MIS has collected data on the number of times social issues have been discussed in the group meetings. The broad themes of the issues are education, women’s health, water, government social security schemes and NREGA, livelihoods, group strengthening, gram sabha and sanitation. However, there is no way to track what exactly was discussed and what was beyond the discussion. The mission looked through the records of the group visited where issues were given more as points in the meeting rather than a precise documentation of what was discussed and what was planned to address the issue. The mission also came across majority of the groups which were having weekly or fortnightly meetings which centered only on savings and loan issues.

219. What is needed as part of the MIS is to be able to track the discussions in the group to analyse the trend of development. This can be done through the following:

• Have a fixed agenda including social issues to discuss in each and every group meeting

• The discussion along with decisions should be recorded in the meeting register.

• The project will need to come up with some indicators of measurement that can assess every quarter the knowledge sink in the group

• At each level – location / FNGO / DPMU – qualitative reports can be made every quarterly, using these indicators and the outcomes of the discussions to be sent to the SPMU for further consolidation and analysis of the progress of the group in aspects of empowerment.

220. What is also needed at this stage for SPMU to re look at the grading system of the groups that they have developed. None of the grading checklist has included discussion of social issues, resolutions etc but mainly looks at transactional details and procedures. Some of the indicators that can be included are:

• How many resolutions were made by the group and presented to whom (Gram Panchayat, Village Development Committee, District Collectors etc)

• Follow up of discussion by the group (to ensure that all steps have been followed carefully and all are informed of the details and understand them clearly)

• Outcomes of the discussion and what they have lead to

• This checklist can also be utelised at the group to check how they have addressed any social or entitlement issue.

221. At the FNGO level and DPM level, the quarterly reports should be analysed to see how much has been achieved and what more needs to be done. At the monthly meetings new strategies can be discussed and finalised to ensure that the empowerment process moves ahead and the women have the necessary support that is required as they move from one level to another.

222. The SPMU can aggregate the findings and build up the M&E system accordingly. Reports can be published bi annually and annually that will document the process of empowerment of the target group.



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TRAININGS 223. A number of trainings have been carried out for staff and target group likewise. A

total of Rs 7.52 lakhs was spent on training, Rs 8.8 lakhs on workshops and Rs. 0.88 lakhs on studies. It was however seen that there is a still a great need to carry out re fresher courses for the community mobilisers to be able to respond to the needs of the women. Presently there is a great need to assess the impact of the number of trainings that have been imparted to both the staff of the programme and the target group. Though much training have been concluded over the period, there has not been much visibility of the impact of the training that has been provided. The programme till date has not carried out an evaluation of the trainings that it has imparted to the groups especially the old groups.

• There is an immediate need to carry out extensive gender sensitisation and

sensitisation of weaker communities trainings for all SPMU and DPMU staff. This should be done in a consistent manner spread across the entire programme period with regular refresher short duration trainings. The Gender Manager may take the support of good local or nationally recognized resource people or agencies for the trainings. Regular feedback and follow up needs to be carried out to ensure that gender gets integrated into each aspect of the programme.

• Staff capacity at the field level needs to be enhanced expeditiously to be able to meet up to the demands of the women as they move from one level to another. Some of the indicators of measuring the knowledge sink of the field level staff are:

• To what extent were the identified training needs objectives achieved by the programme?

• To what extent were the learners' objectives achieved? • What specifically did the learners learn or be usefully reminded of? • What commitment have the learners made about the learning they are going to

implement on their return to work? • How successful were the staff in implementing their action plans? • To what extent were they supported by their direct authorities i.e. Location

Coordinators, District Managers etc • How have the women trained utelised the knowledge that they have gained

through the trainings?

224. There is a need to carry out an evaluation of the investments made in building the capacity of the target group to see if they are gaining through these training sessions. There may be a need to re strategise the trainings so that there is maximum benefit reaching the women, which can translate into useful and productive knowledge for them.

Recommendations Future AWPBs to be more realistically planned to build the gender identity of the programme and that the M&E be set up including gender sensitive indicators The field visits demonstrated that there is a need to work more on sensitization of both women’s issues as well as tribal issues for many of the staff including the district management units. It is strongly recommended that all levels of staff undergo periodic gender sensitization and self reflection training for a year.

The mission strongly recommends that short but periodic refresher courses be imparted to the Location staff to be able to respond to the demands of the women.



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The mission recommends that the gender resource book be immediately completed by end December so as to facilitate understanding of the CMs to take it in a culturally sensitive manner to the field. A meeting of all the consultants involved to finalise the book can be called immediately after this mission to ensure its smooth delivery.

The mission also recommends that the work on different forms of violence against women be immediately carried out.

Accessibility to potable water is a felt need among all women met and the mission recommends very strongly that this need be addressed within this AWPB as part of the drudgery reduction initiatives. This can also be linked up with the NREGA funds to bring water to the villages especially in the northern districts.

The mission feels that the gender strategy needs further elaboration with measurable outcomes and outputs. It is also strongly recommended that the livelihoods strategy needs to have a gendered approach and there is a need to involve men in supporting women in their empowerment process. The mission strongly recommends that documentation cum minuting meeting training be given to the CM at the earliest so that they are able to give an accurate description of the proceedings of the group meetings.

The mission strongly suggests that an agenda be introduced in every group meeting so that there is a more systematic procedure to conduct meetings. There should be an emphasis on discussion of NREGA and access of government social security schemes for women in such meetings where a set plan of action could be made. In determining drudgery reduction interventions, it is very important to analyse both practical and productive needs of the women. The SPMU may also look at some kind of low cost technology that would eventually also double up as an income generating activity like mills, threshers etc that women can run by themselves. The SPMU may need to finalise along with the District Managers and Location staff, the methodology they would like to pursue in identifying beneficiaries especially when it is individual based reduction initiatives. There is an urgent need to formalize the group at the earliest so that the group can carry out the prerequisites for the programme. There is also a need to look at the main purpose of the group as envisaged in the Appraisal Report. This group is to help direct the programme in addressing the gender concerns of the communities. This group is also to help build up the gender strategy for the programme. There is also great potential in having these panchayat women members in the VLCs as they can be the stepping stone for linking the VLCs to the Panchayats.

There is an immediate need to carry out extensive gender sensitisation and sensitisation of weaker communities trainings for all SPMU and DPMU staff. This should be done in a consistent manner spread across the entire programme period with regular refresher short duration trainings.

Staff capacity at the field level needs to be enhanced expeditiously to be able to meet up to the demands of the women as they move from one level to another.



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KNOWLEDGE MANAGEMENT

ANKITA HANDOO, KM SPECIALIST, ICO

Introduction 225. Knowledge management can be defined as the process that supports the

management of knowledge, including generating, validating, synthesing, assembling, storing, sharing, disseminating and using it for effective and enhanced project implementation.

226. “IFAD recognizes that knowledge management is the collection of systems, processes and procedures designed to acquire and share the intellectual and knowledge based assets of the organization and its stakeholders. IFAD recognizes that a central facet of this vision is the staff, project participants, governments, financial and development institutions, civil society organizations and the private sector that are able to mobilize the information and knowledge at their disposal into tangible actions leading to wider benefits. This means sharing lessons learned from our own experiences, by capturing and using the insights and knowledge of others and by constantly reinventing ourselves in the light of evolving circumstances. IFAD recognizes the need for credible, authoritative and convincing evidence to underpin our programme and policy initiatives; the existence of extensive knowledge on rural poverty; and the need to develop our capacity and culture to absorb and contribute to knowledge”♦

227. An IFAD/GOMP Joint Review Mission was fielded from 5-18 November 2009 in two groups. The first group visited 15 villages in Mandla, Dindori and Balaghat Districts and the second group visited 9 villages in Chhatarpur, Tikamgarh and Panna.

Assigned issues as per the TOR

228. As a part of the joint review mission of the Tejaswini Rural Women’s Empowerment Programme, an effort was made to assess the knowledge management component in the project based on the following terms of reference:

1. KM integration in the programme management level, both at the SPMU and

DPMU level. 2. Assessment of the KM activities undertaken by the project 3. Assessment of the current learning systems for project effectiveness:

Information generation, Documentation, Knowledge Sharing, Dissemination, and Advocacy.

4. Capacity Building related issue in the project areas 5. Identification of lessons learnt, successful outputs and outcomes of the

projects for documentation and dissemination Identification of information needs and knowledge gaps in the project for further improvement

6. Support required from the country office Methodology

• The methodology included visiting 9 villages in the Chhatarpur and Panna district and having direct one to one interaction with the communities and the SHG members.

• The mission also visited two location offices in Chhatarpur and one in Panna district (the team comprised of Community Mobilisers, Location Coordinators,

♦ IFAD Strategy for Knowledge Management



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Location Accountants and Bank officials). Besides, the mission had interactions with the FNGOs and RNGOs at both the district offices of Chhattarpur and Panna.

Situational Review 229. The overall performance of the KM component is moderately satisfactory. Since KM

is not a separate component in the AWP&B of the project, there is no KM strategy or communications strategy followed in the project.

230. Therefore, most of the communication activities undertaken by project are in an ad hoc manner rather than in a planned, strategic and systematic way. These activities are done under different project components like women’s empowerment and institution building.

231. The communications activities undertaken by the project this year are as follows:

(a) Preparation of resource materials for SHG development including a training module and a self assessment calendar for the SHGs for all the six districts, (b) SHG melas (fairs) were organized to increase awareness about banking procedures at the location level in all the districts. (c) An inter location peer review learning series was organized in five project districts to understand the project components, monitoring and evaluating the work done so far and the feedback to improve project execution. (d) haat bazaar scheme to introduce marketing skills among the SHG members was also done in all the six districts of the project. (e) Organising women’s campaign on functional literacy of World Literacy day (f)There is frequent media coverage of the Tejaswini programme at the district level especially after an event is organized. This was observed in both the Chhatarpur and Panna districts. The mission recommends that the KM component be included in the Annual Work Plan of the project with an appropriate budget from next year onwards, to undertake the KM activities.

232. It is also suggested that the State staff and District staff be given orientation

training on KM and its components by March 2010, so that the project is able to integrate the KM component in the next year’s AWP&B.

233. A KM/ Communication strategy needs to be prepared by the project next year. This would help to have an improved focus on the nature of KM activities, planning them and the development of better knowledge products. For this, the project could either hire the services of a specialized organization/ or a consultant.

Knowledge / Learning Systems and Networks:

234. There were a series of interaction with the village communities and the project staff which included Community Mobiliser, Location Staff and Location Assistant in Chhatarpur and Panna districts. During these meetings, groups were formed to discuss, understand and, assess the knowledge systems that exist, the strengths and weaknesses of the information network at the community level, service provider level and the project level.

235. Based on the discussions, following are the observations that were made:

In all the villages visited by the mission, the community mobiliser, followed by

FNGO members and the location staff, are the main information providers to the communities regarding the project, its components and all the other information related to government schemes, health, nutrition, education, women’s rights and others.



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The Community mobilisers engage with the village institutions like the Gram Panchayats, Primary Health Centres, other Line Ministries departments at the district level, and also with the District Programme Unit of the project to get information on various topics and issues and then pass it on to the SHG members and village communities in the preferred medium/ channel of communication.

The village panchayat is one of the most important sources of information to the

villagers. The mission observed that the villages which participate in the gram panchayat are far better informed than those who do not participate in the gram panchayats. The head of the panchayat, the Sarpanch is the main focal point, providing all the information regarding the village development activities, government schemes and policies.

The most common meeting places in the villages are the SHG meetings and the

gram panchayat meetings. The other time when villagers meet and interact are during the evenings at a common point in the village or in the mornings while they are going to the field for work, water collection, followed by some weekly markets or some social events such as festivals or campaigns organised by the project.

The most preferred medium for knowledge transfer is through direct interaction.

All the five villages visited felt that direct interaction is the best medium for them. Following that, the other preferred mediums are wall paintings, posters, pamphlets, radio and television programmes.

The literacy rate of women in the villages visited was approximately between

20%-30%. Those who are literate, often help others to understand the message from the IEC materials like posters, wall writings etc. put up in the villages. They also help in maintaining SHG book records with the support from the Community Mobilisers and Community Accountants.

An important observation made is that there are no information and knowledge

products with the communities/ SHG members presently to retain the information that they are receiving on various topics related to project components, government schemes and others.

236. The mission recommends that the Community Mobilisers and FNGOs be trained to

involve the SHG members in creating knowledge products like posters, wall paintings on the various project components and government schemes. For e.g. there could be posters/ wall paintings made instead of providing information in a lecture format. The CM can involve the women in recreating the information as per their level of understanding. These posters, banners and wall paintings can be displayed for the community at large.

237. The Community Mobilisers also need training on communications and interpersonal skills, so that they are able to articulate and communicate effectively while conducting trainings of various training modules associated with group formation, mobilisation, savings and credit, livelihoods etc.

238. These trainings can be organised by the SPMU with the assistance from agencies that specialise in communication trainings. It is highly recommended that these trainings may be imparted by July 2010.

Knowledge Sharing and Advocacy

239. Some of the Knowledge Sharing (KM) activities undertaken by the SPMU include a quarterly newsletter by the SPMU, which include case studies, success stories and innovations from the field. It also includes details on one government scheme in every edition and detailed information regarding project components. The



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newsletter is in Hindi and 2000 copies are published. Each district receives 300 copies for further dissemination. The newsletter targets the district staff, FNGOs, location coordinators and community mobilizers.

240. It is recommended by the mission to increase the number of printed copies so that the newsletter can be disseminated to the gram panchayats and line departments at the district level to build awareness about the project and share the project experiences. This will also help the project to initiate advocacy and related further activities in the next year.

241. There is a blog created at the SPMU level. The blog includes case studies, lessons, articles from the field, and other relevant information on project implementation issues from other websites. Knowledge sharing is also done through emailing article, news clippings, reports and other documents to the districts and location offices.

242. Some of the SPMU staff participate in e-discussions on the ENRAP network to share information regarding the project. It is recommended that more staff become a part of the network and participate in the discussions to learn and share more.

243. However, the Tejaswini project does not have a separate website of its own. The website is a more effective KM tool for information collation, knowledge sharing and advocacy. At present, there is there is hardly any visibility of the Project on the web.

244. The mission, therefore, feels that a website of Tejaswini (Madhya Pradesh) may be created, which can be linked to the MVVN website/ WCD website and the IFAD in India website (www.enrap.org.in). Most of the other IFAD assisted projects of the India country programme have their own websites. This has led to greater visibility of the project and improved knowledge sharing and advocacy.

245. Another form of knowledge sharing that takes place in the project is the monthly meetings conducted at the district level among the FNGO, Location Staff and the District staff members to share experience and to discuss and deliberate on implementation issues. In 2 villages it was observed that at the community level, there is information sharing session organized on different government schemes.

246. The mission recommends that there should be inter district meetings so that critical issues and experiences related to project implementation and management may be shared and discussed at a larger platform. These meetings can also be attended by the SPMU staff and the RNGO to be able to provide them with the appropriate support.

247. It was also observed that there have been only a few meetings and direct interaction between the State and the District Programme Units staff in the past year. To sustain and enhance the information network and strengthen the knowledge sharing systems within the project, it is recommended that there be frequent interactions, meeting and knowledge exchange between the staff of the SPMU and DPMU. Review meetings and discussion events may be organised quarterly.

Documentation and MIS

248. During the field visits it was also observed that the documentation of the SHG progress and other records related to project implementation were systematic and well maintained at the location offices of both the districts.

249. Some innovative ideas to document success stories and field experience along with MIS data has been attempted in some location offices of the Panna district. KM and M&E linkage is very vital for improved documentation and overall strengthening of knowledge management in the project. Data emerging from M&E can be analysed and used to improve project implementation by identifying successful initiatives as



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well as lessons learnt for future implementation activities, it can also help in the preparation of knowledge products like various publications, case studies, reports, articles etc., which can be shared with the project staff of the tiers leading to enhanced knowledge sharing within the project.

250. The mission recommends a KM and M&E linkage workshop in the third or the fourth quarter (July- December 2010) for the SPMU and DPMU staff by IFAD. This training will help to use the M&E and MIS system to generate information and knowledge for developing knowledge products to share across the project and the country programme, which will be used for project management and enriching the programme level knowledge repository.

251. Another observation with reference to documentation is that most of the documentation (reports, case studies) is done in hindi. Translating some documents in English would also help the project to contribute to the IFAD website, newsletters and other publications on a regular basis.

252. The mission recommends translation of important case studies, success stories and reports to English on quarterly basis by the SPMU and sent to the IFAD India Office for further sharing and dissemination.

253. Photo documentation is another innovative way that was adopted to record processes in 2 location offices of the Panna district. Such innovative approaches for documenting successful case studies in the field need to be supported by the Project Management in terms of provision of training on documentation, photo and video training.

Knowledge Products and Studies

254. A number of knowledge products to build into the overall gender awareness strategy for the community have been planned. A resource book on gender related issues was in the making from March 2009, but has been stalled due to administrative issues. A diary was also planned for the community mobilisers to document the social issues that emerged in the group meetings and to track the actions taken. This diary is scheduled to be distributed to the Location staff this month. An interesting study on violence against women was carried out by Vishaka and Sangini to build the material for the resource book on tackling violence against women in the programme. However, further work on this resource material is still pending.

255. It is recommended by the mission that these two documents (dairy and the resource book) be completed and disseminated by March 2010.

Pipeline Activities

256. The other pipeline activities include brochures on women’s empowerment, violence against women, drudgery reduction. The target audience for this would be the community mobilzers, FNGOs who would further disseminate this information at the village level. A radio programme to be aired on akashvani that was to start in April has yet not taken off due to administrative delays and a knowledge sharing meeting with district staff on communication and skill development that was planned is also pending.

257. Based on the above observations of the information network, channel and medium of communications, the SPMU can plan KM related activities like trainings, allocation of human and financial resources to enhance the learning infrastructure for better outputs that will lead to more sustainable outcomes and impact, thus, KM feeding directly to programme management.

258. To conclude, the project has the potential to improve and strengthen knowledge management in the project. The recommendations of the mission will help to set



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up systems that will help to build and strengthen KM in the project, which will in turn help in programme implementation to achieve the project goals.

259. The Knowledge Management Specialist and the Implementation Support Specialist, IFAD India Country office will play a facilitating role till the next review mission.

Recommendations 1. Training workshop on KM components and developing work plan 2. Training on KM and M&E linkages for SPMU+DPMU 3. A KM/ Communication strategy needs to be prepared by the project next

year 4. Training on communication skills, inter personal skills and material

development, photo documentation for location staff 5. Website for Tejaswini to be created in the next AWP&B 6. Increase the number of printed copies of the project newsletter 7. Translations in English of reports and documents 8. Complete the pending activities of this year by March 2010 before the next

fiscal year



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FIDUCIARY AND FINANCIAL MANAGEMENT

Sudhir Muralidharan

Financial Management 260. Manual Accounting.: The Project maintains manual books of accounts at the

SPMU and all DPMUs. With project activity set to pick up significantly, manual accounting will not be able to cope with the increased transaction volume. Furthermore, data integrity and arithmetical accuracy will always be suspect under a manual system.

261. HR issues related to Financial staff: During detailed discussions with the Finance Manager (FM) at the SPMU, Finance Officers (FOs) and Finance Assistants (FAs) at the DPMUs, the following facts emerged.

262. The Finance Manager at the SPMU was served with transfer order in August 2008 and is yet to be relieved by the project. He may have to take up his new assignment as soon as a suitable replacement is provided to the Project. Further, the Finance Unit of the SPMU has only 2 staff – FM and FA. This has led to the FM having to function as an FO and not as a Manager. He has had to neglect the qualitative aspects of his assignments and spend his time moving files related to trivial payments.

263. The Finance Officers (FOs) of Dindori and Mandala DPMUs have been transferred and are likely to take up their new assignments before the end of November 2009. They will hand over charge to their respective Finance Assistants in the absence of any replacement. Further, the post of FO-Panna is vacant and is being looked after by FO-Chatarpur as an additional charge. The Finance Assistant at DPMU-Balaghat has not been attending office for the past 2 months. Staff shortages at DPMUs are severely impacting effective financial management of the DPMUs.

264. Finance Assistants are contractual employees engaged by the Project at a consolidated remuneration of Rs.8000 per month. The Mission understands that this remuneration is not competitive as per contemporary market conditions and as a consequence the present incumbents are on a continuous lookout for better opportunities. Further, FAs do not get any other benefits as per their contract.

265. Though all the FOs enjoy higher grades that the DPMs in their parent departments, they are classified as Grade B under the Project whereas the DPMs are classified as Grade A. This has led to a lot of discontentment among the FOs.

266. The rules do not provide for FOs who hold additional charge of one more DPMU or for FAs who officiate as FOs to receive any officiating allowance.

267. The FOs who have been deputed to the Project DPMUs hold the rank of Additional Treasury Officers in their parent department and get a mere Rs.1500 allowance for serving with the Project. The Mission found them to be demoralized and keen to return to their parent department at the earliest. All of them felt that they were underworked and that DPMS do not respect their counsel.

268. Terms of Reference have not been drawn up for FOs and FAs. As a result, they are unclear about their roles and responsibilities.

269. Finance staff as Control Points: A significant amount of the project expenditure is incurred by the DPMUs. However, the Mission noted with concern that the finance Officers and Finance Assistants did not function as effective control points. They



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seemed to function merely as book keepers, subservient to their District Project Managers.

270. Budgetary Control: There was no evidence of the project using the AWPB as an effective management tool. Though the Project had compiled the cumulative expenditure by activity up to 31-3-09 and presented the same alongside the budgeted expenditure for the same period, the Mission noted with concern that –

• There was hardly any correlation between physical and financial achievement percentages. (Annexure 1.4)

• The overall achievement till 31-3-09 was 11.20 % and the achievement for the subsequent 6 month period till 30-9-09 was 13.30 %..

• The cumulative expenditure against AWPB was 360 % for Activity 5.1.2- Computers &UPS, 178 % for Activity 5.1.3-Laptops and 122 % for Activity 5.1.4-Software.

• This reflects a general lack of financial discipline. Any deviation from the AWPB is requires the concurrence of IFAD.

271. Uniformity of DPMU Reporting Formats :While verifying financial reports received by SPMU from DPMUs, the Mission observed that-

• The reporting formats used by different DPMUs were not uniform.

• The DPMUs reported only actual expenditure. They did not report the actual expenditure against their budgeted expenditure. On further enquiry, the Mission learnt that the DPMUs are not even aware of their budgeted expenditure.

272. SHG Records : On the basis of random verification of 2 SHG records per district and subsequent discussions with the NGO staff, the Mission observed as under :

• SHG Cash Book, member pass books, savings registers etc. were maintained properly and were updated.

• Loans to members, deposits and withdrawals from banks, repayments etc were recorded as part of the proceedings.

• Most SHGs had opened bank accounts and bank pass books were updated.

• SHGs were eager to know about the way forward. The Mission found that DPMU staff and NGO staff themselves were unclear or unconvinced about the way forward.

• SHGs had no fixed maximum limits on cash in hand. They only had minimum limits for the same.

• In some SHGs, loan repayments were delayed for long periods of time.

• One Community Accountant supervises over 200 SHGs while one Community Mobilizer oversees 10-15 SHGs. Most often the Community Accountant does not meet an SHG more than 3 times a year.

273. Mission observations are detailed in Annexure 1.6.

274. DPMU Records :The Mission verified DPMU records on a random basis and observed as below.

• Books were maintained up to date. • There were no official limits on cash payments or cash balances. • Daily cash and bank balances were struck. • Expenditure was well supported but not properly classified in some cases. • Some DPMUs did not prepare regular Bank Reconciliation Statements.



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• Training expenses were generally within the norms prescribed by SPMU. However, this was not so in Mandala DPMU.

• Some DPMUs did not produce fixed asset physical inventory report for verification.

Detailed observations are available in Annexure 1.7.

275. Non delegation of Financial Powers and related delays. : Financial powers at the SPMU are highly centralized with even the smallest transaction being cleared by the MD/PD. Since there has been a substantial turnover of MDs/PDs in the past 2 years, routine decisions have been kept pending for long periods of time. For example, the file relating to appointment of auditors for 2008-9 was initiated in May 2009 and the appointment letter was finally issued on 10-9-09. Though DPMs can approve routine operational expenditure, they require SPMU sanction for planning and executing programme activities like trainings. In fact, DPMUs execute trainings on the basis of a predefined calendar circulated by the SPMU. The calendar specifies the subject of the training, the number of participants, dates and schedules, account heads to be debited etc. Such micro management by the SPMU has killed initiative at the DPMU level and slowed the pace of financial achievement.

276. FNGO Payments :The Mission verified payments to FNGOs at random and observed as under-

• The FNGO contracts are not clear whether the payments to which the FGNGOs are entitled are reimbursements of actual expenses or whether they are to be paid on a lump sum basis. While Annexure 2 of the contracts sets out the amounts to be paid against each cost component, it is not clear whether these are upper ceilings or absolute amounts.

• As a consequence of the above, the applicability of TDS is not clear as TDS is not applicable to expense reimbursement while it is applicable to lump sum payments. The SPMU deducts TDS on all FNGO payments treating them as lump sum payments, to err on the side of caution. However, FNGOs have to submit expense vouchers to claim these amounts and justifiably feel that these are reimbursements. They find it very cumbersome and time consuming to get refunds of these amounts from the tax authorities. In many cases they have to write off this amount and effectively work at 90 % of their contracted remuneration.

• The FNGO contracts are structured in such a way that FNGOs are paid on the basis of expenses incurred by them. Payments are in no way linked to productivity or performance. As a result, the FNGOs seem to be focused on creating documentation to substantiate their claims rather than on their TOR.

• FNGO claims are checked by FOs at the DPMU and then forwarded to the SPMU for payment. The Mission did not find any value addition by the SPMU on receipt of these claims. Routing these claims through the SPMU only add to the delay in processing them.

• As on November 5, 2009, 29 FNGOs were working with the Project at 60 locations. The position of payments is as below-

Payment cleared up to ( No. Of FNGOs)Details

Up to

June 30,2009

Up to

September 30,2009

Up to

December 31,2009

Up to



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Advances Paid 7 16 1 5 till 31-3-09 SoE settled 16 0 0 6 till 31-3-09, 4

till 31-12-08, 1 till 31-8-09 and 1 till 10-2-09

277. It is obvious that SPMU’s plan to pay FNGOs one quarter advance has failed. Whether delayed processing of FNGO claims is due to delayed submission of claims or due to verification delays at DPMUs and SPMU, the FNGO staffs stand to lose the most. In two cases where the services of FNGOs were terminated after a long drawn out enquiry process, payments to these FNGOs were suspended for several months before alternative arrangements were made.

Procurement

278. Bulking of requirements: The SPMU has not bulked requirements of location equipment like invertors and furniture etc and DPMU equipment like invertors and digital cameras. for centralized procurement as required by the IFAD Procurement Guidelines and Schedule 4 of the Loan Agreement. Instead the SPMU has allowed DPMUs to procure these items locally. However, computers for location offices and SHG kits have been procured centrally from Government agencies. The Mission noticed an anxiety on the part of the SPMU management to procure from Government agencies, ostensibly to avoid the competitive bidding process.

279. Procurement Procedure: The technical evaluation for procurement of livelihood development agency was recently cleared by IFAD after placing on record that the proper procurement procedure for selection of consultants was not followed. The Project has limited procurement capacity and awareness of IFAD’s Procurement Guidelines is limited.

Disbursements.

280. Overall Loan Disbursement : As on 30th September 2009, the cumulative disbursement by IFAD against the loan of USD 13 Million stood at USD 0.901 Million (7 %). The Government of MP has met 62 % of its overall commitment to the project. No contributions have been received from the co-financiers or from the beneficiaries. Details are given in Appendix 3 (a).. Loan disbursement was low because project expenditure was low and there was inadequate follow up of pending Withdrawal Applications by the SPMU. It may be noted that if loan disbursement does not reach an acceptable level by the Mid Term Review due in 2010, a part of the loan may be cancelled..

281. Project expenditure by Component: The overall expenditure under all components against the approved estimate as per Appraisal Report was 7 %. The expenditure against Component E-Project Management was highest at 44 %, expenditure against Component B- Livelihood & Micro Enterprise Development and Component C=Microfinance Services was nil. More details are available in Annexure 3(b). Project expenditure has been extremely low due to frequent changes in leadership of the programme which in turn resulted in lack of direction, initiative and consistent policies.

282. IFAD Disbursement against loan categories : Up to 30th September 2009, the cumulative loan disbursement stood at USD 0.795 Million or SDR 0.640 Million, the WA pending stood at USD 0.677 Million ( SDR 0.480 Million) and the balance loan stood at USD 11.465 Million ( SDR 8.131 Million). The disbursement was highest against Category I- Equipment & Materials (41 %) and was nil against Category IV-Community Funds & Grants ) Details are given in Appendix 3 (c).

283. Overall Achievement against AWPB:. The cumulative achievement against AWPBs up to March 31,2009 was 11.20 %. The achievement against the 2009-10 AWPB up to 30-9-09 was 13.30 %.. Achievement against AWPBs was low because



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the AWPBs had set unrealistic targets. This was a consequence of DPMUs not being fully involved in the planning process.

Counterpart Funds.

284. Shortfall in counterpart funds : The IFAD loan is delivered to the project through the budgetary allocation from the Government of MP to the Department of Women and Child Development (WCD). Since the amount transferred to the project is not bifurcated between loan and counterpart funds, the extent of shortfall in the counterpart funding cannot be clearly identified. However, considering the commitments of both IFAD and the Government as per approved AWPBs for 2007-8 through 2009-10, the cumulative shortfall in the amount transferred to the project by GoMP as compared to the commitment as per AWPB, was to the extent of 62 %.. However, due to the poor progress of project implementation, the shortfall in transfer of funds by GoMP has not adversely affected project activities. Year wise details are available in Appendix 4.1.

Audit

285. Selection of Project Auditors : Auditors for the Project for 2008-9 were appointed by applying the least cost method to a short list of auditors prepared through a very basic technical evaluation process. As a result of following the Least Cost Method as against the Quality cum Cost Basis, the auditors who quoted the lowest cost were selected. It is noteworthy that the auditors had quoted an audit fee of under $ 900 for the audit of the SPMU and 6 DPMUs. The project could not provide IFAD’s NOC for audit TOR or for appointment of auditors for verification by the Mission.

286. Programme Financial Statements (PFS) : The SPMU did not have the capacity to prepare the Balance Sheet, Sources & Application of Funds and Withdrawal Application Summary in IFAD’s Standard Reporting Formats. They submitted Sources & Application of Funds and WA Summary for audit, but the correct formats were not complied with.

287. Audit Process :The Mission understands that the auditors spent a total of 6 days at the SPMU and 2 hours at each of the DPMUs during the audit. Further, while discussing the audit methodology with the auditors, the Mission observed that the auditors had dropped important audit points, forming part of their working notes, from their draft reports

288. Audit Report:. The final audit report for 2008-9 was not available to the Mission pending signature by the SPMU Management. A draft report was provided for verification. The report did not address the following areas mentioned in the TOR.

• Use of IFAD funds as per provisions of the PLA • Timely release and proper utilization of counterpart funds • Procurement of goods and services as per provisions of the PLA • Adequacy of fixed asset records maintained by the project

289. IFAD places a high degree of reliance on programme audit reports and a poorly drawn up audit report can seriously impact IFAD’s assessment of the programme financial management capacity.

290. Audit Log : The SPMU reported that audit observations for 2007-8 were auctioned. However, the Mission was not provided with any evidence of the same. Since the report for 2008-9 was not finalized, the audit log did not contain any entries.

291. Internal Audit : The audit report for 2007-8 and the draft audit report for 2008-9 have recommended the introduction of an internal audit system for the Programme. The internal audit system must cover the SPMU, 6 DPMUs, 29 FNGOs, 2 RNGOs and 12000 SHGs. The extent of check may be decided by the SPMU. The



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focus of the internal audit exercise must be on strengthening of the internal control system and on compliance.

Withdrawal Applications

292. 6.1. The Mission verified the reimbursement claim aggregating Rs.15.373 Million for the Jan-March 2009 quarter. The application was sent to CAAA on 8-7-09. The Mission found expenditure to be well supported and properly classified. Major observations related to the verification of expenditure covered by this WA are reported in Section 1-Financial management.

293. 6.2. IFAD is yet to reimburse claims related to Jan-March 2009 and Apr-June 2009. The SPMU is not aware of any reasons for the processing delay. The claim for July-September 2009 was ready for despatch from the SPMU to CAAA.

Compliance with Loan Covenants

294. The Mission observed the following non compliances with loan covenants.

• Section 3.02 (b) : As per this section, the SPMU was required to submit a draft AWPB for 2009-10 for approval of the Fund on or before 1-2-09. The draft AWPB was submitted for approval of the Fund on 1-5-09.

• Section 3.05 (b) :As per this section, the State Government is required to make available funds as per the AWPB, at least quarterly in advance. The funds transferred by the State Government to the Project till 31=3=09 represent 38 % of the requirement as per AWPBs.

• Section 4.01 : As per this section, the SPMU is required to establish and maintain an appropriate information management system within 180 days of loan effectiveness. This is yet to be done.

• Section 5.02 (a) : Under this clause, the SPMU is required to appoint auditors with prior permission of the Fund, within 30 days of the start of the year. The auditors were appointed without the prior permission of the Fund on 10-9-09.

• Section 5.02 (b) : Under this section, the SPMU is required to submit an audit report to the Fund within 6 months of the close of the financial year. This is yet to be done and the deadline lapsed on 30-9-09.

• Section 4.2(a) of Schedule 3 : Under this section, the SPAC and the Empowered Committee are required to meet a certain minimum number of times a year to direct programme implementation. These committees are not meeting the required number of times in practice.



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Agreed action Responsibility Agreed date Accounting Software : the SPMU must take immediate steps to procure and implement an off the shelf accounting software ( like Tally) at SPMU and DPMU levels. The manufacturer must be asked to provide requisite training and hand holding support during implementation. Parallel manual records must be maintained till the end of this financial year after which manual records may be dispensed with. DPMU Finance Units must be provided with one desktop computer and UPS along with the new software. The additional hardware requirement is budgeted in the AWPB for 2009-10.@ Rs.40000 per location.

SPMU By 31-12-09



Next meeting of EC.

Budgetary Control: FM will take responsibility to ensure that proper budgetary control measures are in place throughout the project. Wherever it is felt expedient to deviate from the AWPB, proper sanction must be taken from IFAD for AWPB revision.

FM and SPMU With immediate effect


SPMU By 31-12-09


SPMU By 31-12-09


SPMU By 31-12-09

Procurement : Wherever possible, requirements must be bulked and centralized at the SPMU.IFAD’s procurement guidelines must be followed without exception.


Disbursement : The SPMU must try to avoid part loan cancellation at the MTR stage by speeding




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Agreed action Responsibility Agreed date up disbursements. This can be done by appointing a full time PD, planning and scheduling activities budgeted in the AWPB and by delegating financial powers both within the SPMU and to DPMUs. Compliance with loan covenants : The PLA is to be complied with in letter and spirit under all circumstances.



SPMU By 30-4-2010.

Internal Audit : The SPMU must engage the services of professional chartered accountant firm(s0 through a fair and competitive process using the QCBS method to conduct the internal audit of SPMU, DPMUs , FNGOs and SHGs. The internal audit TOR must be finalised in consultation with IFAD’s India Office.

SPMU By 31-12-09. To cover 2009-10 and onwards.

Annex II: FEEDBACK OF MD REGARDING THE AIDE MEMOIRE OF THE 2ND JRM OF TEJASWINI MP

Para No

AM Feedback from MD

1 IFAD may decide at Mid Term Review, to be fielded in mid 2010, to reallocate funds based on the performance of the two States involved

Dissatisfaction at the language utelised here. The tone is like a threat to the state government.

4 The meeting had no chair person as both the Deputy Secretary cum MD of the Nigam and the GM (Additional Programme Director) was unable to attend. The mission also regrets to state that it was not able to meet with the Additional Programme Director throughout the visit who is currently managing the programme.

Objection raised to these two sentences saying that due to unavoidable reasons none of them could be present at the stakeholders meeting.

6 The critical issues the mission would like to highlight ….

Administrative delays be removed or explained. Issues identified could be put in a more positive manner.

20 Rather than from any study which could be of assistance at a later date when MIS data shows that there is potential to add value and scale in certain areas.

Change in language to make it more positive

31 Staff at senior levels report that they have not had the opportunity for training in institutional capacity building of people’s institutions and exposure to projects where this has been effective.

Change in language – need to be put in a different manner

34 However it seems that a request has to come from the SPMU to the RNGO to directly intervene in the field.

It is the RNGO’s responsibility and that they should not expect the SPMU to send invitations.

35 Further unless there is investment by Government, Private Sector or NGOs in an area which generates employment and creates opportunities which the poor can exploit, given the necessary skills and support, micro finance is of marginal use

The MD feels that the mission cannot dictate what the government should or should not be doing as this is a loan.

45 box

Senior and Middle staff to be given a sound theoretical understanding of the SHG-Bank Linkage and SGSY Programs

Change in language – removal of “sound”

46 Overall, the progress of this component from the previous JRM till date is very unsatisfactory.

Change in language- removal of “very”

The total budget for the year is Rs 104.02 lakhs out of which only 5.85 lakhs has been utilised and this is due to administrative delays in the implementation of the planned and approved activities.

Remove “administrative delays”

47 This is a serious issue to consider firstly, that this is a women’s empowerment programme in a state that has recorded among the lowest levels of gender equality in the Human Development Index of the

This para could be removed.



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country and secondly, due to the non implementation of the planned activities, the movement of building up of the confidence levels of decision making of the women has been neglected.

49 However, this group is yet to be formalized. There is already a group but not yet formalized. Change in language “Group to be strengthened by addition of government line departments”

The mission would like to request the management staff to refrain from carrying out meetings with stakeholders during the course of the mission in future.

Sentence to be removed. Document should not indicate such details. The meeting was for purely administrative reasons.

50 Gender Cross Cutting Group To be replaced by “project” 51 box

Future AWPBs for all components to be more realistically planned so that there is more concerted effort to building confidence of the women rather than just achieving output targets.

Change in language To be written in 2 sentences – • AWPBs to be realistically

planned • Efforts to building women’s

confidence

A meeting of all the consultants involved to finalise the book can be called immediately after this mission to ensure its smooth delivery.

Change in language - The word “immediately” should be removed

52 it may be more realistic to post an IAS officer as full time Managing Director of the Corporation MVVN

To remove the word “IAS”. The government will decide whom to instate as the MD.

53 Team meetings at the SPMU and at the Districts attended by SPMU officers have not been held which has led to a breakdown in communication and loss of learning through sharing; decisions required to take up training and other programs approved in the AWPB have been delayed; staff transfer especially in the Finance Departments have not been managed so that the new staff are posted in time for proper taking over of responsibilities; several posts are lying vacant; the audit report for 2008-9 was not available to the mission pending signature by the PD; relations between Project staff and RNGOs/FNGOs which need to be managed in such a way as to get the best through synergies are deteriorating because emerging problems are not addressed in time; payments to FNGOs have been delayed; submission of reports by the SPMU to IFAD in time has not been forthcoming. Since program activities like trainings even though approved in the AWPB needs SPMU sanction, the absence of a PD has resulted in delays in giving these sanctions thus holding up several

Team meetings have been carried out. The mission has asked for the minutes to correct any factual errors. Language is too strong. There is no need to indicate so many details but just to indicate that implementation is not going as planned.



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programs.

55 Overall the project seems to be drifting and

quickly needs senior and sustained leadership if it is to achieve what it aspired to, namely to be the better half of the Tejeswani program.

Sentence should be removed or re worded in a more positive manner

55 box

Administration delays in approving activities by SPMU which have already been agreed to under the AWPB to be avoided.

Re word ‘administrative” or make the sentence more positive

58 The report is then shared at the monthly review meeting with the DPMs, which presently has not been conducted over the last few months after the last full time MD was transferred.

Meetings have happened according to the MD. Mission has asked for the minutes.

59 box

It is imperative that the M&E system incorporates the social evolution of the groups and the members.

Repetition in 2nd and 4th recommendations

66 Since KM is not a separate component in the AWP&B of the project, there is no KM plan and the activities are done in an ad hoc manner rather than in a planned, strategic and systematic way

Change in language - Removal of “planned, strategic and systematic way”

73 However, further work on this resource material is still pending due to administrative delays.

To be removed.

76 A radio programme to be aired on Akashvani that was to start in April has yet not taken off due to administrative delays and a knowledge sharing meeting with district staff on communication and skill development that was planned is also pending.

“administrative delays” should be removed. What was not carried out should not be indicated. Re word to read that “planned activities were not carried out”

80 Staff shortages at DPMUs are severely impacting effective financial management of the DPMUs

Change in language - Removal of “severely”

82 Loan disbursement was low because project expenditure was low and there was inadequate follow up of pending Withdrawal Applications by the SPMU.

Should be removed

…. a part of the loan may be cancelled.

The statement may seem to be intimidating in nature. Cancel the sentence. Too many times it is repeated.

84 The draft AWPB was submitted for approval of the Fund on 1-5-09.

Change in language - Should not read “non compliance” but “delayed compliance”.

89 These committees are not meeting the required number of times in practice.

Change in language - The phrase “in practice” should be removed.

92 The SPMU did not have the capacity to prepare the Balance Sheet, Sources & Application of Funds and Withdrawal

Change in language - Should be removed or re worded, especially the reference to “capacity”



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Application Summary in IFAD’s Standard Reporting Formats

95 IFAD places a high degree of reliance on programme audit reports and a poorly drawn up audit report can seriously impact IFAD’s assessment of the programme financial management capacity.

Change in language - “poorly drawn up” should be replaced with “incomplete”

95 box

Immediate and decisive steps must be taken to retain the FM-SPMU and 2 FOs who have been transferred to their parent units.

State government’s prerogative to decide course of action.


Re word.

Disbursement : The SPMU must try to avoid part loan cancellation at the MTR stage by speeding up disbursements.

Change in language - Removal of “loan cancellation”


Change in language - Removal of “under all circumstances”

104 However as the project was gathering steam to take off, change of the Project Director and the unsettled situation since May 2009 has slowed the process down and undermined its focus. At present, it is the finance unit which really runs the project since all activities need to be cleared by finance. There is no effective leadership to take decisions required in projects like Tejaswini which are focused on empowerment and change which sometimes do not fit into a financial management culture.

Re word paragraph. MD feels that the Finance Manager is not running the programme. That sentence should be removed. Would like the sentences to encourage the staff.

105 The FNGOs have continued to provide training though at a slower pace due to several administrative hurdles which need to be removed.

Removal of “administrative hurdles”.

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