poverty eradication action plan andhra pradesh 2003 (draft)

CHAPTER ITEM PAGES

I CONSOLIDATION OF THE POVERTY ERADICATION ACTION PLAN 1-6

II KEY ELEMENTS OF THE CONSOLIDATION PROCESS 7-12

III ORIENTING THE CONSOLIDATION PROCESS 13-16

IV POVERTY AND THE ANDHRA PRADESH CONTEXT 17-30

V MONITORING AND IMPACT ASSESSMENT 31-42

VI EVOLVING ACTION PLAN LOG FRAMES 43-62

VII THE WAY FORWARD 63-66

INDEX

Ref: G.O.Ms.No.219, Dated: 07-07-2003

As has been discussed at the meeting of 25-07-2003 convened by the Chief Secre-

tary, the present draft document has been prepared for consultations at the State

Level before being forwarded to the World Bank and DFID. The primary purpose is to

clarify to the World Bank and DFID that AP already has a viable Poverty Eradication

Action Plan underway.

Apart from the above primary purpose, the document also highlights certain

lacunae in the manner in which the Action Plan of the State Poverty Eradication Mission

is being operationalised, and which requires urgent and concerted action on the part

of other Missions and key Departments for redressal. The institutional linkages outlined,

the model for better management of indicators, new methodologies such as disaggre-

gated poverty analysis and spatial analysis tools, logical framework approach and a

suggested Plan Management and Impact Assessment System (PMIAS) discussed in the

present document, provide a framework for Missions and Departments to refine and

further evolve their action plans and integrate it with the Log Frame of the State Pov-

erty Eradication Mission’s (SPEM) Action Plan.

In the process, they will also require to achieve clarity on how they will inter-

face with the Poverty and Social Analysis Monitoring Unit (PSAMU) under SPEM.

The following factors need to be highlighted in the context of the consolidation

process that this document represents:

1. Currently a valid mechanism is required to ensure that the various Missions are

meeting and playing their mandated role in providing inputs required for taking

forward the Poverty Eradication Action Plan. Appropriate secretariats and exter-

nal professional resources and institutional support networks have also to be in

place for each Mission.

COVERING NOTE TO DOCUMENT TITLED “ CONSOLIDATING AP’S POVERTY ERADICATION ACTION PLAN ”

2. The State Poverty Eradication Mission has to coordinate inputs from other Missions and departments and ensure that their ‘past year performance review’ and ‘ next year plans’ are integrated with SPEM’s own reviews and Annual Plans. This requires SPEM to exercise its prerogatives as the lead Mission for Poverty Eradication and mandate the PSAMU to lead the process.

3. Given the diverse externalities impacting the health sector and the cross-sectoral de-pendencies in achieving targets in health, there is a need to formally constitute a Health Mission (From the point of view of the Action Plan, the assumption adopted is that the Department of Health, Medical and Family Welfare has been functioning in a Mission mode.)

4. While the draft document has identified a few sets of intermediate and final indica-tors, Missions, in consultation with the Departments and other bodies falling within the scope of their mandate, will have to identify the necessary range of indicators re-quired by their Sectoral Action Plans. In the process, they also have to identify appro-priate Annual Review mechanisms aligned to SPEM’s Year-end Review - and Next Year Plan process.

5. To complete the Sectoral strategies and plans, linking indicators, professional support is required to put this in the logical framework approach.

6. The PSU has made valuable learnings in the process of drafting this document, and is willing to deploy these learnings and its resources in continuing to play a facilitation role in taking forward the Poverty Eradication Action Plan.

The last section of the document outlines the steps for the Missions and Departments to take the consolidation process forward to a ‘Final’ Action Plan, which reflects a partici-patory process and which, in its Annual and Five year cycles, truly incorporates community-level, Mandal-level and District-level plans.

The PSU thanks the Chief Secretary, Principal Secretaries, Commissioners and Offi-cials of various departments in supporting the Programme Support Unit’s efforts in draft-ing this document.

S.P.Tucker, IAS

Coordinator - PSU

CONSOLIDATION OF THE

POVERTY ERADICATION ACTION PLAN

CHAPTER I

BACKGROUND The State of Andhra Pradesh has a total geographical area of 27.44 million

hectares. Out of a total population of 7.5 crore, the rural population com-

prises 5.5 crore.

As a part of the State’s poverty eradication plan, a large number of

Women’s Self Help Groups have been formed (with a total savings of over

Rs.1500 crore) and networked into federations. Each of the 45,000 habita-

tions today has at-least one Self-Help Group. The membership of Self- Help

Groups is estimated to cross 8.5 million from the present 6 million in the next

few years.

The extreme poor in the State, including the disabled, child labour

and other disadvantaged sections, are being organised under a programme

with special focus termed VELUGU. The Velugu Programme includes the Dis-

trict Poverty Initiative Project (Velugu Phase–I, with a Rs. 593 crore outlay)

and the A.P. Poverty Reduction Project (Velugu Phase– II, with a Rs.1486

crore outlay). Velugu proposes to cover 30 lakh families.

The state has initiated plans to develop 10 million hectares of ‘wasted’ lands

or dry lands, which are also pockets of acute rural poverty. Alongside, pro-

grammes such as the DFID-supported Andhra Pradesh Rural Livelihoods Pro-

gramme (which has joined the ongoing Watersheds Programme) have been

taking forward the need for diversification and non-farm activities and also

bringing previously marginalized sections within the ambit of Sustainable

Natural Resources Management-based developmental initiatives. The Liveli-

hoods Approach thus becomes the focus of the 20,000 proposed watersheds

in the State, of which more than 7,500 are already underway.

The Andhra Pradesh Urban Services for the poor (APUSP) is a Rs. 745 crore

DFID-supported programme already under implementation in 32 urban cen-

tres (Class I Towns). The Project covers poverty eradication, livelihoods, envi-

ronmental and infrastructure issues through participatory processes for as-

sessing needs. The Programme learnings will be scaled up to cover the poor

falling under all the urban local bodies in the State.

CONSOLIDATION OF THE POVERTY ERADICATION ACTION PLAN

As a part of the State’s

poverty eradication

plan, a large number of

Women’s Self Help

Groups have been

formed (with a total

savings of over Rs.1500

crore) and networked

into federations.

6 PSU-APRLP

As a result of the initiatives of Swarna Andhra Pradesh and Janmabhoomi,

rural poverty in Andhra Pradesh has come down to 11% and urban poverty

to 26.6% ( Lakdawalla Methodology).

The total number of people being covered by anti-poverty initiatives

is much more than that indicated in the lead programmes of Velugu and

APUSP. This is especially so since the multi-pronged approach to poverty

eradication has led to poverty-focused strategies and actions in various sec-

tors, where, too, inclusion in programmes is based on Participatory Identifica-

tion of the poor (PIP).

The progress being made by Andhra Pradesh in addressing poverty

effectively is on account of holistic strategies for pro-poor growth and an in-

tegrated Poverty Eradication Action Plan.

To facilitate the integration of resources and achieve convergence,

AP has strategically addressed poverty issues through four key Missions

(the Poverty Eradication, Water Conservation and Utilisation, Literacy,

and Employment Generation Missions) and a focused approach in the De-

partment of Health, Medical and Family Welfare. Each of these Missions,

along with the Departments, Commissionerates and special initiatives contrib-

uting to achieving their goals have set targets and identified indicators.

These were integrated into the Poverty Eradication Strategy of the State

Poverty Eradication Mission (SPEM) and the resultant Action Plan.

However, it has been the State’s strategy to have a dynamic ap-

proach to the operationalisation of the Poverty Eradication Action Plan. This

is essential for optimal plan cycle management and effective feedback for

corrective steps, where required. The process also ensures that the plan

moves through the appropriate stages in becoming truly participatory. In or-

der to achieve these objectives, the government has, in 2003, initiated steps

to consolidate the Poverty Eradication Action Plan and outline the way for-

ward from the critical juncture it has reached.

The consolidation process will facilitate:

a. Enhanced synergy among various Missions and Departments and clarify

their linkages.

The progress being

made by Andhra

Pradesh in addressing

poverty effectively is

on account of holistic

strategies for pro-poor

growth and an inte-

grated Poverty Eradica-

tion Action Plan.

POVERTY ERADICATION ACTION PLAN I. CONSOLIDATION OF THE POVERTY ERADICATION ACTION PLAN

7 PSU-APRLP

b. Build a stronger sense of ownership among all stakeholders in the State’s

Poverty Eradication Strategy and Action Plan.

c. Find agreement on key indicators, both intermediate and final.

d. Facilitate mechanisms for monitoring and evaluation that are participa-

tory.

e. Create an enabling environment for inclusive policies and mid-course cor-

rections.

f. Integrate the Poverty Eradication Strategy and Action Plan more effec-

tively with the budgetary process.

g. Align various sectoral reforms with the Poverty Eradication Strategy and

goals

h. Achieve role clarity, and define the stake and contributions of various

constituents in the Poverty Eradication Strategy and Action Plan.

i. Create a conducive and transparent environment for the Union Govern-

ment’s initiatives in Poverty Eradication and also for initiatives by Donor

Agencies / Lending Agencies, and their closer alignment with the State’s

goals and Strategy in Poverty Eradication.

Processes have been initiated, based on a clear understanding of the

purpose, for further integrating sectoral strategies and Action Plans with the

State- Wide Action Plan of the Poverty Eradication Mission, keeping the fol-

lowing guidelines in mind:

1. As with the Poverty Eradication Strategy, the Action Plan assumes Sector

Wide Approaches and Mission Mode, and the institutional implications of

this needs to be further clarified.

2. The plan horizon for each sector shall be of five years, with Participatory

Annual Reviews and Social Audits.

3. At each stage of review, Intermediate Indicators shall be used to ap-

praise performance vis-à-vis Five Year Plans, Millennium Development

Goals and Andhra Pradesh is Vision 2020.

4. The Action Plan for each sector shall have a Communication Strategy that

addresses the needs of participatory processes.

Processes have been

initiated based on clear

understanding of the

purpose, for further in-

tegrating sectoral

strategies and Action

Plans with the State

Wide Action Plan of the

Poverty Eradication

Mission.


8 PSU-APRLP

STATE POVERTY ERADICA-TION MISSION

WATER MIS-SION

EDUCATION FOR ALL

EMPLOYMENT GENERA-TION MISSION

DEPT. OF HEALTH, MEDI-CAL & FAMILY WELFARE

o To develop a clear vision for poverty eradication and recommend strategies for time bound achievement of this vision.

o Take measures for ensuring convergence of all sectoral plans and programmes.

o Ensure technical updation for sustainable development of the poor.

o Suggest time bound and specific measures for em-ployment security, food se-curity and universal provi-sion of health care, drinking water, housing and elemen-tary education among all poor households.

o Effective implementation of the entitlements and rights of the poor. Especially of women, the scheduled castes., scheduled tribes, the backward classes and the minorities.

o Promote social mobilisation: the self-help and other func-tional groups as the princi-pal mechanism for poverty eradication.

o Provide guidance on the best practices in the national and international spheres.

o Advocate and recommend suitable pro-poor policies and ensure adequate budg-etary allocation.

o Monitor periodically.

o Conservation and judicious use of water in the State.

o To formulate

- Effective plans and methods for conserving wa-ter

- Time-bound action plan for conservation of

water

o To implement the conserva-tion and use of water with the co-ordination of all function-ally related departments.

o To carry-out water conser-vation pro-grammes eco-nomically

o Encourage local people’s participation in water con-servation

o Monitor and assess con-tinuously the water conser-vation pro-grammes

o To obtain the people’s views and suggestions on the ways, means and methods in respect to water conser-vation.

o The primary goal of the state is to in-crease over-all literacy levels from the current 54% of the population to over 95% before 2005.

o Special focus on the back-ward and less literate areas of the State.

o Universalisa-tion of Ele-mentary edu-cation.

o During the next 3 years take adult literacy, through the Akshara Sankranthi Programme, to 105,00,000 Adult illiter-ates.

o A d e q u a t e infrastructure and socio economic con-ditions to be c r e a t e d through con-certed sus-tained and multi pronged action.

o To use mod-ern technol-ogy to im-prove deliv-ery of high quality edu-cation to un-reached ar-eas.

o To develop a vision and strategy for employ-ment generation and to prepare a time bound action plan for imple-mentation of the same.

o To suggest measures to derive synergy of the plans and programmes of various departments working directly or indi-rectly for employment generation.

o Advise on institutional and organisational mechanisms for effec-tive implementation of the Action Plan for em-ployment generation.

o Regularly monitor and oversee employment generation action plans in the State and advise on the future steps to be taken.

o Initiate public debate on important policy is-sues related to employ-ment generation and build consensus for pol-icy reforms related to it.

o Advise on Human Re-source Development through institution build-ing and suggest a framework for optimum utilization of the infra-structure available for training on a continuous basis and identify fresh requirements of infra-structure and the re-sources for training.

o To facilitate manpower planning in key sectors of the economy.

o To identify and advise on the regulatory as-pects of training.

o Every person will have access to responsive ba-sic healthcare and spe-cialised healthcare at affordable prices.

o Women will have safe and successful pregnan-cies. Infant / child mortal-ity due to ailments like ARI and diarrhoea will be reduced drastically.

o The spread of AIDS will be contained

o Communicable diseases like Malaria and TB will be effectively prevented.

o Families will be small and better spaced. Equitable access to quality health care will be ensured. Health sector will be equipped to deliver quality services for non communicable diseases and trauma and injury cases.

o Life expectancy levels will reach 68 years for males and 70.6 years for females from the current 62 years and 64 years respectively.

o Enhancing technical effi-ciency of key programs and clinical effectiveness.

o Ensuring micro/macro economic effectiveness in the use of resources

o Improving quality of care/consumer satisfac-tion

o Assuring systems for long-term sustainability.

AP’s POVERTY ERADICATION ACTION PLAN LEAD MISSIONS AND THEIR MAJOR OBJECTIVES


9 PSU-APRLP


Source: Vision 2020 Swarna Andhra Pradesh

Source: Vision 2020 Swarna Andhra Pradesh

10 PSU-APRLP

11 PSU-APRLP

MILLENNIUM DEVELOPMENT GOALS At the Millennium Summit in September 2000, the states of the United Nations reaffirmed their commitment to working

towards a world in which sustaining development and eliminating poverty would have the highest priority. The Millennium

Development Goals grew out of the agreements and resolutions of world conferences organized by the United Nations in

the past decade. The goals have been commonly accepted as a framework for measuring development progress

There are 8 Goals / 17 Targets and 49 Indicators. The Goals and Targets are given below.

1. Eradicate extreme poverty and hunger Target for 2015: Halve the proportion of people living on less than a dollar a day and those who suffer from hunger. 2. Achieve universal primary education Target for 2015: Ensure that all boys and girls complete primary school. 3. Promote gender equality and empower women Targets for 2005 and 2015: Eliminate gender disparities in primary and secondary education, preferably by 2005, and at all levels by 2015. 4. Reduce child mortality Target for 2015: Reduce by two-thirds the mortality rate among children under five 5. Improve maternal health Target for 2015: Reduce by three-quarters the ratio of women dying in childbirth. 6. Combat HIV/AIDS, malaria and other diseases Target for 2015: Halt and begin to reverse the spread of HIV/AIDS and the incidence of malaria and other major diseases. 7. Ensure environmental sustainability Targets: • Integrate the principles of sustainable development into country policies and programmes and reverse the loss of environ-mental resources. • By 2015, reduce by half the proportion of people without access to safe drinking water. • By 2020 achieve significant improvement in the lives of at least 100 million slum dwellers. 8. Develop a global partnership for development Targets: • Develop further an open trading and financial system that includes a commitment to good governance, development and poverty reduction – nationally and internationally • Address the least developed countries’ special needs, and the special needs of landlocked and small island developing States • Deal comprehensively with developing countries’ debt problems • Develop decent and productive work for youth • In cooperation with pharmaceutical companies, provide access to affordable essential drugs in developing countries • In cooperation with the private sector, make available the benefits of new technologies – especially information and commu-nications technologies.


KEY ELEMENTS OF THE

CONSOLIDATION PROCESS

CHAPTER II

LEVERAGING THE ENABLING ENVIRONMENT AP has a highly enabling environment, the aspects of which include:

1. A definite pro-poor policy focus.

2. A government committed to inclusive policies, governance reforms

and harnessing ICT and other tools for greater transparency and re-

sponsiveness.

3. A large number of Self Help Groups whose networking has created a

tremendous opportunity for building social capital

4. A clear cut vision (Vision 2020) which covers Millennium Development

Goals and exceeds their targets and also identifies the growth en-

gines and reforms that support Poverty Eradication Strategies.

SWARNA ANDHRA PRADESH—VISION 2020 1. a. 1999

• Andhra Pradesh takes stock of its standing on key points • Vision 2020 is initiated. • Growth engines identified

b. Fourteen Cabinet Sub-committees constituted. • Strategies for realizing Vision 2020 goals evolved

c. AP recognizes Poverty Eradication as a core element of socio-economic development d. Poverty Eradication Strategy and Action Plan aligned with the people-owned Janmabhoomi movement e. Poverty Eradication Action Plan put in Mission mode with sector-wide approaches f. State Poverty Eradication Mission to lead the Action Plan g. Other key Missions are:

1. Employment Generation Mission 2. Water Mission (NRM & Environment) 3. Education-For-All Mission

h. Department of Health, Medical and Family Welfare works in a Mission mode. i. Sectoral Strategies, Approach Papers and Action Plans drawn up.

• Convergence, Participatory process, Gender and other Equity issues become dominant themes 2. Poverty Eradication Action Plan linked to macro-economic policies, Planning and Budgetary processes.

• Public Investment Programme focusing on pro-poor growth 3. Reforms in various sectors and Juridical initiatives to strengthen Poverty Eradication Action Plan 4. 2003

Consolidation Process of Poverty Eradication Action Plan initiated: • Review of progress • Adoption of Plan Monitoring and Impact Assessment System • Establishment of Poverty Monitoring and Social Analysis Unit (PMASU) • Creation of Logical Framework for Action Plan and move to Project-based approaches • Disaggregated Poverty Analysis, better models for managing indicators and agreement of Intermediate

and Final Indicators • Processes for taking the plan forward as a true People’s plan through participatory tools.

KEY ELEMENTS OF THE CONSOLIDATION PROCESS

13 PSU-APRLP

In this context, it is important to bear in mind that AP’s human and other

resources have the potential for an economic surge similar to that of the

South East Asian Countries. The Poverty Eradication Action Plan is therefore

integrated with the State’s overall growth plan and stresses the following:

RAPID ECONOMIC GROWTH

• Human Capital Development

• Developing Social Capital of the poor

• Promoting Sustainable Livelihoods

• Focus on backward Mandals

ALONGSIDE, WE HAVE TO ENSURE

• More inclusive policy

• Access to assets and markets

• Public Investment Programme on Education, Health, Transport/

Infrastructures and Communications

• Initiatives targeting Insecurities and Vulnerabilities of the poor and

mechanisms for social protection

LINKING WITH GROWTH ENGINES

The expression “Pro-poor Growth” is being preferred to ‘Poverty Reduction’,

because it focuses on the key driver of Poverty Eradication. Growth- en-

hancing reforms matter a lot for Poverty Eradication, provided, of course,

that non-income dimensions of poverty are strongly reflected in policies,

strategies and actions.

A PRO-POOR GROWTH STRATEGY

REQUIRES, AMONG OTHERS

• Strong incentives for investment

(more capital per worker).

• Fostering trade and business link-

ages for faster transfer of knowl-

edge.

• Policies and investments for inter-

nal market integration.

The Janmabhoomi initiative has created a very powerful plat-

form and is a powerful leverage for all sectors in the Poverty

Eradication Strategy of AP. It provides a thematic setting for

convergence and the execution of the communication strategy

essential to the success of the Action Plan. Sectoral Action Plans

have to reflect how the Janmabhoomi Platform will be lever-

aged synergistically. Aligning on a common platform, along

with other elements of the Action Plan, will also address the criti-

cism of AP’s Poverty initiatives being fragmented and having

avoidable redundancies and duplications.

POVERTY ERADICATION ACTION PLAN II. KEY ELEMENTS OF THE CONSOLIDATION PROCESS

14 PSU-APRLP

• Increased external economic integration.

• More competitive agricultural markets.

• Reducing spatial disparities in Infrastructure (In this context, at the macro

plan level, it is worthwhile to relook policies on the manufacturing sector.)

From Garments and Leather products to Medicinal Herbs and Agro-services,

over 40 areas have been identified as pro-poor growth engines. In one way

or another, these areas also find a place in Vision 2020 as the engines of

GSDP growth. The Sectoral and Sub-sectoral Action Plans and the State-

wide Action Plan for Poverty Eradication have to now establish clear links

with these engines of growth. This will also facilitate positive responses in

embedding the Action Plan in the budgetary process.

LEVERAGING AND STRENGTHENING

SOCIAL CAPITAL

The growth of social networks in AP has been remarkable and the State has

succeeded in organising a range of groups based on needs and pro-

grammes, etc., which has led to accumulation of social capital. The State’s

move from an individual beneficiary approach to group based approaches

has been a key element of its Poverty Eradication Strategy and has pro-

moted collective action of the poor and augmented greater participation

and more bargaining power for access to developmental resources.

THE CONSOLIDATION PROCESS OF THE ACTION PLAN HAS TO ADDRESS THREE ISSUES IN THIS REGARD 1. The routing of development resources through groups has the attendant

risk of the very poor being excluded. However, the State has begun ad-

dressing these issues through DPIP, APRLP and APUSP initiatives. Sectoral

Action Plans could use the learnings of these initiatives and adapt their

practices for ensuring participation and coverage of the very poor.

2. Social Capital being a critical resource in Poverty Reduction Actions, the

Poverty Eradication Action Plan has to make provisions for investment in

social capital and incorporate, over time, indicators for monitoring social

capital along with other socio-economic parameters.

The growth of social

networks in AP has

been remarkable and

the State has succeeded

in organising a range of

groups based on needs

and programmes, etc.,

which has led to accu-

mulation of social capi-

tal.


15 PSU-APRLP

3. The Poverty Eradication Action Plan

in its consolidation needs to incorpo-

rate steps to maximize the potential of

Self-Help Group through:

a)) Training Needs Assessment based

on their productive and reproductive

workload.

b)) Leverage the SHG movement for

Capacity Building and consequent

strengthening of Social Capital

c) ) Utilize SHGs as a platform for sen-

sitization and action on gender and

other equity issues.

POVERTY MAPPING The most critical and important milestone in rural poverty reduction is to identify the target poor. In addition to the Govt. of India using the Participatory Poverty Assessment approach, Participatory Identification of Poor (PIP) was done. Tools like Transect Walk, Social Mapping, Vulnerabil-ity Analysis, Disability Mapping and Well Being Analysis were used to collect information and identify the poorest of the poor and the poor through community participation.

POOREST OF THE POOR

POOR

• Can eat when they get work, part of social support from the State.

• No shelter No proper clothing

• Cannot send chil-dren to school

• Cannot get credit

• Not possessing land • Can live on daily wages • School going children are sent

for work • Can get some credit • Not able to repay debts • No proper shelter • No respect in the society

20 km0 10

DPAP

APRLP Mandals

5

Railway

183

20

Other Mandals

50

National highwayState highway

Number of SHGsper habitation

N

Number of SHGs per habitationDec 2001

Spatial distribution of SHGs


16 PSU-APRLP

PARTICIPATORY IDENTIFICATION OF THE POOR (PIP) AS A PLANNING TOOL

PIP is emerging as the dependable tool not only for identifying the poorest of the

poor, but also the spatial distribution of concentrated poverty pockets. Plotting infor-

mation generated through PIP, using GIS tools and cross mapping it with information

on related indicators in health, education, etc., creates a Geographic Management

Information System on Poverty. This provides a critical Decision Support System to

AP’s two-track approach in poverty eradication, facilitating priority-based and fo-

cused action in chronic, high intensity poverty pockets.

The circled areas are pockets of ex-treme female literacy Poverty.


17 PSU-APRLP

18 PSU-APRLP

ORIENTING THE

CONSOLIDATION PROCESS

CHAPTER III

POLICIES FOR PRO-POOR GROWTH

It is observed that, the ability of the poor to earn higher incomes will depend

on three factors: (1) Growth factor: the production potential of the economy;

(2) The employment factor: that is, the extent to which potential growth en-

hances the employment potential. How the increased demand for labour gets

split up between the quality and quantity of employment depends on the na-

ture of the growth process that is employment intensive; (3) the integrability

factor: that is, the extent to which the working poor are able to integrate into

economic processes so that, when growth occurs and employment potential

expands, they can take advantage of such opportunities. If growth and em-

ployment opportunities are such that the capabilities they demand do not

match the capabilities of the poor, then either non-poor workers will seize the

opportunities or they won’t be seized at all. Lack of integrability may also

result from market failures, especially failure of the credit market, poor in-

frastructure, and lack of information.

ORIENTING THE CONSOLIDATION PROCESS

ENTERPRISE DEVELOPMENT AND NETWORKS

The Vision 2020 document of Andhra Pradesh states that around 18-20 million new jobs will have to

be created by 2020 in Andhra Pradesh to achieve its goals. Presently around 70 per cent of the

workers are dependent on agriculture. By the year 2020, only 35-40% of the workers are expected

to be dependent on agriculture in the state. It means that significant job opportunities need to be

created in other sectors of the economy in the state. Macro-economic (GSDP) growth emerges as the

foremost indicator of the success of our pro-poor growth strategy.

The micro-enterprise growth plan of the State has private stake holding built into the model as a

major influencer. The government shall encourage private-public sector partnership models, with the

aim of enhancing private investment. Efforts are under way to promote activities based on growth

engines and sub-sectors identified on the principle of comparative advantage. The network of SHGs

and their Federations are seen as a ‘potential producer’ as well as a ‘consumer’ of produce and the

SHGs have reached a stage where they are looking for new business propositions with their huge un-

utilised savings.

POVERTY ERADICATION ACTION PLAN III. ORIENTING THE CONSOLIDATION PROCESS

19 PSU-APRLP

Basically the pro-poor growth should be labour intensive. Economic growth is

necessary for Poverty Reduction. A pro-poor development Strategy requires

more than economic growth alone. The impact of growth on poverty depends

also on the character or pattern of growth. For growth to have the biggest

impact on poverty, policy makers need to complement macroeconomic and

adjustment policies with equity-enhancing sectoral and redistributive meas-

ures. These include policies to foster more agricultural development and

faster development of small and medium enterprises.

MONITORING & EVALUATION, REVIEW AND

MIDCOURSE CORRECTIONS The way Monitoring and Evaluation processes are incorporated in the Action

Plan will make all the difference to its effectiveness.

Through the PIP initiative of DPIP, AP has formalized the participatory

approach to poverty mapping. The question in the Action Plan process is to

see how PIP (Participatory Identification of Poor) can help us to use analyti-

cal tools in its context and take the Poverty Eradication agenda forward.

This has a synergy with how Social Capital can energise the agenda.

SELECTED GROWTH ENGINES

SEMI-SKILLED POPULATION/ILLITERATES

Sector Activity Sector Activity

Primary 1. Agro-processing and services 2. Vegetable cultivation, processing and

trading 3. Horticulture and floriculture 4. Sericulture 5. NTFP processing

Primary 1. Agricultural services 2. Agriculture extension 3. Input supply marketing 4. Produce marketing

Secon-dary

1. Handicrafts (including Handlooms) 2. Leather tanning and goods 3. Stoneware & ceramics 4. Cement & construction material

Secon-dary

Tertiary 1. Rural services 2. Paramedics and Paravets 3. Transportation 4. House-keeping

Tertiary 1. IT enabled services 2. Tourism and hospitality 3. Education and health care services 4. Business and financial services (including

micro-finance, micro-insurance etc.)

EDUCATED UNEMPLOYED


20 PSU-APRLP

The process of consolidating the Action Plan should enable us to re-

think the policy implications of PIP and social capital resources.

In terms of the structuring of the Action Plan, a critical implication of

this is for the Monitoring and Evaluation processes.

Currently, different initiatives, departments, etc., gather large

amounts of data from the community level which are archived without feed-

ing back into management decisions or policy.

The Action Plan has to address this by incorporating MIS nodes at all

critical interfaces and institutionalise feedback cycles that translate into Deci-

sion Support Systems at various levels, and also as a Policy Resource and

tool for midcourse corrections where required.

The M & E process incorporated into the Action Plan should have

clear-cut provisions for State-Level Reviews and be supplemented by work-

shops and other initiatives to realize the vision of a Learning Community.

The process will also respect that Poverty is not a static concept and

that participatory poverty mapping will alter indicators over time. The M &

E process should also be able to evaluate the performance of engines of

growth at the macro level vis-à-vis their impact on Poverty Reduction.

CONTINUITY, LEARNING, PROCESS

DOCUMENTATION Missions, Departments and Commissionerates are coordinated by various

Ministries. Processes have to be in place to ensure that the strategies and

Action Plan benefit from mechanisms for continuity in implementation. This

requirement in continuity also extends to the consolidation of individual and

collective learnings.

A key requirement in this area is Process Documentation. Process

documentation not only consolidates learnings in an experiential mode, but

also serves to reflect upon the how of things and communicate experiences

and best practices to other constituents / actors of the Poverty Eradication

Plan.


The M & E process in-

corporated into the Ac-

tion Plan should have

clear-cut provisions for

State-Level Reviews

and be supplemented

by workshops and other

initiatives to realize the

vision of a Learning

Community.

21 PSU-APRLP

Process documentation also translates the significance of their work to

all the personnel of Departments, Missions and Commissionerates, beyond

mere statistics, in a motivating fashion and in the context of the larger picture

spanning all sectors. The role of Process Documentation in implementing the

Action Plan has to be stressed and seen as different from Annual Reports /

Progress Reports.

PROGRAMME-PROJECT MODES AND ADDRESSING

REDUNDANCIES AND DUPLICATIONS

Chapter 2 (2.8) of the Draft Tenth Five-Year Plan of the Government of In-

dia mentions that “the rapid growth in the number of schemes also entailed

an undesirable build up of unproductive cost on administration and expendi-

ture”. Though it has been remarked that A.P. too has a significant amount of

redundancy/duplication in its Poverty Eradication Programme, programmes

such as the APRLP (Andhra Pradesh Rural Livelihoods Programme (APRLP)

and Andhra Pradesh Urban Services for the Poor (APUSP) have already be-

gun an alternative approach of joining ongoing programmes and bringing

to them extended scope, holistic agendas and also new and best practices,

apart from other resources.

The success of these experiences also hold yet another important

point for AP’s Poverty Eradication Action Plan. This is the need to implement

programmes in the Project Mode. This has critical value in optimising re-

sources, effective planning and better evolution of outcomes.

The broad heads discussed above are critical saliences and coordi-

nates which should guide the consolidation of the Poverty Eradication Action

Plan.

Process documentation

not only consolidates

learnings in an experi-

ential mode, but also

serves to reflect upon

the how of things and

communicate experi-

ences and best prac-

tices to other constitu-

ents / actors of the Pov-

erty Eradication Plan.


22 PSU-APRLP

POVERTY AND THE

ANDHRA PRADESH CONTEXT

CHAPTER IV

MACRO POLICY AND LEAD INSTITUTIONS

In order to give concrete shape to its poverty eradication approaches and to

realize the Vision 2020 goals, the State Government constituted a State

Level Poverty Eradication Mission (SPEM). The SPEM is a committee of

government officials and representatives from research institutes and civil

society, whose role is to coordinate and provide guidance on poverty

reduction efforts in the state.

The SPEM’s strategy paper in 2001 lists a broader set of measures to

reduce poverty, which include:

a. Generation of faster growth, especially in agriculture;

b. Promotion of health and education services;

c. Enhancing social capital through Self Help Groups (SHGs)

d. Promoting sustainable livelihoods of the poor;

e. Focusing on backward regions and poorer sections of the society; and

f. Improving the administrative machinery in order to improve the

delivery services for the poor and promote greater convergence of

social development and other poverty-focused programs in the state.

The State government has promoted the Society for Elimination of

Rural Poverty (SERP) to facilitate implementation of the strategies and

approaches by SPEM. The Velugu-I Project, known during its pilot phase as

the AP-District Poverty Initiative Programme (AP-DPIP), and currently known

as the Velugu-II or AP Rural Poverty Reduction Project (AP-RPRP), is

implemented by SERP, with special emphasis on empowerment of poor

through social mobilization and institutional building, capacity building and

research. It focuses on the very poor and communities not covered by

previous poverty reduction initiatives, and also acts as a forum of advocacy

for the formulation and implementation of pro-poor policies, plans and

programmes.

POVERTY AND THE ANDHRA PRADESH CONTEXT

POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT

SERP focuses on the

very poor and

communities not

covered by previous

poverty reduction

initiatives, and also acts

as a forum of advocacy

for the formulation and

implementation of pro-

poor policies, plans and

programmes.

24 PSU-APRLP

While SERP focuses on rural poverty, needs of the urban poor are

specially catered for through the APUSP or the AP Urban Services for the

Poor project. The APUSP basically addresses urban poverty issues through

Slum Improvement Programmes (SIPs) in several towns and cities governed

by Municipal Corporations and Municipalities.

In addition to the above initiatives, poverty issues are also addressed

through the Water, Employment and Literacy Missions and the Dept. of

Health and Family Welfare.

The Andhra Pradesh Rural Livelihoods Programme (APRLP) under the

Water Mission is concentrating its efforts in the same locations developed

under the Drought Prone Area Programme (DPAP). The APRLP initiatives are

systematic in their approach with special emphasis on community

participation and empowerment to identify, design and implement livelihood

options.

IDENTIFYING THE POOR

The most critical and primary task before the state government and the

agencies entrusted with poverty eradication goals has been to identify the

areas that need attention, and the target communities or individuals who

need to be included in the designed programme. While the selection of

districts to plan and implement pro-poor initiatives is still mostly done on the

basis of SC / ST population concentrations, the selection of poor at the

community or household levels has undergone several positive transitions from

ad hoc identifications through baseline study approaches to Participatory

Poverty Appraisal (PPA).

DISTRICT PRIORITISATION

Poverty is a manifestation of several inter-related factors. During the early

days, district selection for poverty eradication programme implementation

was taken up more on the initiatives of an area representative on some

limited criteria or parameters. Later, with the definition of “Poverty Line”, the

selection of districts was based on the concentration of BPL (Below Poverty

Line) households generated from baseline surveys.

The selection of poor at

the community or

household levels has

undergone several

positive transitions from

ad hoc identifications

through baseline study

approaches to

Participatory Poverty

Appraisal (PPA).


25 PSU-APRLP

However, with the process for below poverty level enumeration

always being under a grey cloud, the need to identify districts on a more

logical set of parameters or indicators became imperative. In line with the

approach proposed here, it may be logically assumed that the positive

development scenario in a better off district is due to a ripple phenomena

set off by the abundance of one or two resources.

A graphic analyses of data to demonstrate the relationship between impact

of development and backwardness is given below:


26 PSU-APRLP

CLUSTERING OF DISTRICTS WITH THEIR SALIENT FEATURES


27 PSU-APRLP

APRLP INNOVATIONS FOR AREA SELECTION

The Andhra Pradesh Rural Livelihoods Programme (APRLP) has adopted

innovative techniques to identify its priority Mandals. Focusing on watershed

development as the main canvas for its operations, APRLP has utilised the

Poverty Atlas, a Remote Sensing Database and a Socio-economic Database.

Since APRLP seeks to consider people’s livelihood situations in their entirety, it

has sought to integrate the indicators identified through the above-

mentioned sources and develop indices of Natural Resources Degradation and

Multiple Deprivations. The watershed analysis carried out by APSRAC

(Andhra Pradesh State Remote Sensing Applications Centre), giving the four

modified categories of Natural Resources Degradation, and the Multiple

Deprivation (also called social and material deprivation) categories are

given equal importance. When integrated, they generated sixteen

typologies (Box – 1). Prioritisation of areas to be selected was based on

these typologies, with areas categorised under typologies 1, 2, 3 and 4

receiving the highest priority in addition to areas which confirm to typologies

5, 9 and 13 as they have high poverty incidence irrespective of the natural

resource status. The process of area selection is further strengthened by the

use of nine-point selection criteria (Box – 2). Weightage is given to each of

these nine parameters based on marks allocated for different manifestations

of these parameters. The final selection of areas for implementation is also

supported through qualitative observations as a ground-truth verification

exercise.

Box – 1 : Deprivation Typologies Typologies 1 – 4 Very high NRM deprivation with high, medium moderate or low levels of poverty respectively Typologies 5 – 8 Medium NRM deprivation with high, medium moderate or low levels of poverty respectively Typologies 9 – 12 Moderate NRM deprivation with high, medium moderate or low levels of poverty respectively Typologies 13 – 16 Low NRM deprivation with high, medium moderate or low levels of poverty respectively

Box – 2 : 9 Point Selection Criteria for Selection of Micro Watershed Areas Adopted by APRLP • Percentage of small and marginal farmers • Percentage of SC / ST holdings • Percentage of women organised in SHGs and

participating in programme • Status of ground water • APSRAC prioritisation • Livestock population • No. of families affected / involved in migration • Contiguity of proposed • Availability of fallow / wasteland & CPR for the

poor to utilise usufruct


APRLP seeks to

consider people’s

livelihood situations in

their entirety.

28 PSU-APRLP

THE AP-DPIP INITIATIVES

The AP-District Poverty

Initiative Programme (AP-

DPIP), in particular, has

extended beyond the scope of

GoI guidelines by adopting

the PIP approach in tandem

with the routine BPL survey

based on the 13 GoI

recommended indicators

(Box – 3). Separate BPL lists

are prepared using the BPL survey as well as the PIP process and the lists

are compared to shortlist the common households. While the disaggregated

information on these indicators is used for identifying the poorest of the poor

and the marginally poor sections of the community, aggregated information

from these indicators is used for policy formulation.

Using the Participatory Poverty Assessment approach, specifically the

PIP (Participatory Identification of the Poor) process, DPIP has adopted tools

like Transect Walk, Social Mapping, Vulnerability Mapping, Disability

Mapping and Well Being Analysis to gather the required information that

helps identify the poorer households. The PIP process is used with sufficient

care to ensure total community participation through preliminary rapport

establishment, informal meetings with key community members, community

meetings, sharing of information and involvement & approval of the village

panchayats. Till the 31st March, 2003, DPIP has managed to undertake PIP

exercises in 14, 585 villages spread across 792 Mandals in 16 Districts.

PRO-POOR GROWTH STRATEGIES UNDERLYING THE

ACTION PLAN

Andhra Pradesh undertook many reforms in the last seven years. They are:

fiscal reforms, power reforms, governance reforms and institutional reforms.

The objectives of these reforms are to step up economic growth and alleviate

poverty while protecting the environment. Reforms are underway in the

power and irrigation sectors for expanding their capacity by improving

efficiency and cost-recovery.

Box – 3 : Indicators for BPL Identification 1. Size of operational holding of land 2. Type of house 3. Average availability of normal wear clothing (per

person in pieces) 4. Food security 5. Sanitation 6. Ownership of consumer durables 7. Literacy status of the highest literate adult 8. Status of the household in labour force 9. Means of livelihood 10. Status of children (5-14 years) (Any child) 11. Type of indebtedness 12. Reasons for migration from household Preference

for assistance


The PIP process is

used with sufficient

care to ensure total

community

participation through

preliminary rapport

establishment,

informal meetings

with key community

members, community

meetings, sharing of

information and

involvement &

approval of the

village panchayats.

29 PSU-APRLP

Significant strides have been made in respect of participatory

management of land, water and forest resources through the watershed

development committees, water user associations and joint forest

management. Women’s Self-Help Groups are a success story in the State

and have formed a central element in the Strategy for poverty eradication

through social mobilization, community empowerment and capacity building.

These reforms will yield significant results in course of time and will

facilitate realising the Goals of the Action Plan.

The reforms reflect the State’s strategies for achieving MDG’s by

2015 and eradicate poverty by 2020 through a focus on the following

policy areas:

ECONOMIC GROWTH

The distance between AP and all India and fast performing State’s widened

in the post-reform period on account of weak social and economic

infrastructure. Therefore, the State is increasing capital outlays substantially

to build up infrastructure.

AGRICULTURE

The experience of developing countries shows that agricultural growth is

considered as pro-poor because the majority of the poor are dependent on

this sector. Agriculture has been an area of strength for AP but has not

received adequate priority in the last two decades. At the aggregate level

for agriculture, the following policy issues are focuses for higher growth:

(a) Augmenting the investment in agriculture and rural infrastructure; (b)

Improving the quality and reach of technology dissemination, particularly in

rain-fed areas; (c) Re-examining the legal framework for land-leasing to

ensure adequate safeguard for both the tenants and the landowner, as this is

likely promote greater investment in agriculture; (d) Providing an

enabling environment to facilitate the farmers to benefit from the emerging

opportunities thrown up by the liberalization and globalisation;

Women’s self help

groups are a success

story in the State and

have formed a central

element in the Strategy

for poverty eradication

through social

mobilization, community

empowerment and

capacity building.


30 PSU-APRLP

(e) Aggressively pursuing diversification in agriculture to optimise income and

employment (f) Focusing on non-farm employment opportunities, by

promoting appropriate agro-based processing industries; agro-based

processing industries; (g) Promoting rapid rural growth in drought-prone and

rainfed areas of the State. In these areas, horticulture, forestry and livestock

will play a larger role. Basically, this signifies high priority for irrigation,

agricultural research, especially in biotechnology focused on dry land

farming, extension services and ensuring access to institutional credit for

resource-poor farmers.

Vision 2020 document of the State of Andhra Pradesh has accorded prime importance for the devel-

opment of agriculture, targeting an overall growth rate of 5.7 per cent. Six major “growth engines”

have been identified for the sector (Watershed development, Agro services, Oilseeds, Vegetables,

Spices and Dairy). Strategies for development of agriculture feeds into three major missions viz. Wa-

ter Mission, Employment Mission as well as the Poverty Mission. Further the activities of eight govern-

ment departments are being coordinated under the popularly known programme Neeru–Meeru

(Water and You).

• Under a 10-year perspective watershed development plan from 1997 to 2007, it is aimed at de-

veloping 10 million ha wastelands.

• A rainwater harvesting space of 0.71 bcm (25 tmc) has been created, resulting in additional an-

nual groundwater recharge of about 6.09 bcm (215 tmc).

There is focus on community mobilisation and production enhancement through:

• Formation of 2 lakh Rythu Mitra User / Self-Help Groups.

• 1 million acres of land to be brought under horticulture with drip irrigation systems, further in-

creasing water use efficiency and reducing water demand, contributing to the objectives of Water

Mission.

• Productivity increase in Oilseeds is being pursued by the Technology Mission on Oilseeds, Pulses

and Maize.

• Livestock and rain-fed farming systems support each other very well. Feed and fodder, and the

relations between livestock and management of natural resources are addressed as being of cru-

cial importance for sustainable livestock production.

NATURAL RESOURCES MANAGEMENT (WATER MISSION)


31 PSU-APRLP

Conservation of surface and groundwater has become imperative. This is

best achieved when water and power are priced according to the volume of

consumption. Involvement of rural communities is essential in setting user

charges as well as for assessing individual consumption.

INDUSTRY

Slow industrial growth has been an area of concern. Strengthening

infrastructure, such as, power, roads and ports, expansion of institutional

credit for small scale and rural industries, and good governance by cutting

down delays in giving clearances and reducing corruption stand out

prominently as areas of reform for attracting private investment domestic as

well as foreign.

INFORMATION TECHNOLOGY

There is thrust in policy framework in AP towards making IT an enabler in

development and equalizer of opportunities. With the spread of education

and decentralization of governance, IT can become a powerful tool in the

hands of the people at large for their socio-economic betterment and overall

empowerment.

LABOUR - INTENSIVE PATTERN OF GROWTH

One of the main elements of pro-poor growth is labour intensive pattern of

growth. In all the sectors (agriculture, industry and services), there is a focus

on increasing employment. Given the problem of unemployment for edu-

cated and unemployment and underemployment for the masses, twin strate-

gies for improving the livelihoods are developed. The first sub-strategy

aims at rural and urban masses that are illiterate/semi-literate, unskilled,

and semi-literate/skilled. The second sub-strategy addresses the problems of

educated unemployed. It will be on Selected Growth Engines and Clusters for

these two categories.

The current strategy of social mobilization for watershed develop-

ment aims to be sustained in the long run by making land use more remu-

nerative through new dry land technologies and the development of infra-

structure.

There is thrust in policy

framework in AP

towards making IT an

enabler in development

and equalizer of

opportunities.


32 PSU-APRLP

POLICIES FOR FULFILLING TARGETS IN NON-INCOME

DIMENSIONS OF POVERTY

A. SOCIAL SECTOR EXPENDITURES

The trends in social sector expenditures in A.P is positive. The Social Sector, is

defined as the total of expenditure on ‘Social Services’ and ‘ Rural

Development’ as given in Central and State budgets. The head ‘Social

Services’ includes, among other things, education, health & family welfare,

water supply and sanitation. The expenditure under the head ‘Rural

Development’ (which is listed under ‘Economic Services’ in the budget

classification) relates mostly to anti-poverty programmes. A.P. spent around

6 to 11 per cent of its GSDP on the social sector in the last two decades. It

may be noted that the impact on the outcomes in social sector depends on

both expenditures and on the effective utilization of these expenditures.

B. EDUCATION

There are three issues that the State is addressing in improving literacy and

primary education in the State. First, is resources allocation to education

particularly to primary education from the budget. Second, the quality of

education in terms of curriculum, better infrastructure and improvement of

teaching. Third, retaining children in the schools which is more difficult than

enrolling them. The A.P. government has designed schemes such as

‘Mabadi’ (our school), ‘Chaduvkundam’ (back to school) and akshara sankranti

to improve access to children and women of disadvantaged communities.

Retaining of children in the schools needs intensive institutional arrangements

such as social mobilization of the community on child labour and education.

Such attempts are being made successfully at the micro level.

A.P. spent around 6 to

11 per cent of its GSDP

on the social sector in

the last two decades. It

may be noted that the

impact on the outcomes

in social sector depends

on both and the

effective utilization of

these expenditure.


33 PSU-APRLP

C. HEALTH

Great stress has been placed on improving the major element of public healthcare, i.e. the

Primary Health Centres. Hospital Advisory Committees have been created and active public

healthcare system managements.

EDUCATION FOR ALL MISSION

Vision 2020 of Andhra Pradesh states that "Andhra Pradesh will not be just a literate society, but

a knowledge society capable of meeting the challenges posed by the 21st century. It will be a

state in which every person will be able to realise his or her full potential through access to edu-

cational opportunities regardless of the class or region to which he or she belongs".

To achieve the goals of Universalisation of Elementary Education (UEE) and Universalisation

of Adult Education (UAE), Government of A.P has constituted a State-level-Education-for-All

Mission.

The Mission’s objectives are:

• To review the existing situation in the state in regard to literacy.

• To identify areas of strength and critical areas of weakness.

• To review all ongoing programmes relating to universalisation of elementary educa-

tion and adult literacy in the state and suggest measures for coordinating, integrating

and strengthening them to achieve the best results.

• To suggest measures to control dropout rate, promote retention, and improve quality

at both primary and secondary levels in schools.

• To draw upon the best national and international practices in literacy and school edu-

cation identify new strategies and approaches to achieve the Vision 2020 objectives

in the state.

• To draw up a coordinated plan for promoting education among disadvantaged

groups, in particular girls, minority communities, SCs and STs, Girl Child in remote

tribal areas.


34 PSU-APRLP

Public expenditure on the health sector is beng increased. It is not

enough to allocate more resources to the sector. The efficiency of public

spending is also being improved. More resources are being spent on

preventive care. Poor benefit more from this. Primary healthcare services

are being made accountable to the local communities. The share of private

sector in the total health care sector is high and has increased over time. One

cannot ignore, therefore, the role of private sector in the State. Efforts are on

to make the private sector accountable to the poor. The Government is

planning to promote institutions to regulate the private sector.

HEALTH (DEPT. OF HEALTH, MEDICAL AND FAMILY WELFARE)

AP’s Vision 2020 is succinct and challenging in the goals it sets for the health sector.

By 2020, the state aims at:

• Achieving health indicators of international standards / levels

• Stabilize population growth

To realize the Vision 2020 goals, AP’s health sector focuses on the following priorities:

1. Universal access to primary healthcare

2. Specific programmes to promote family welfare, particularly, the health of women and chil-dren and family planning.

3. Focusing on improving health status in disadvantaged groups and backward regions.

4. Ensuring a strong prevention focus

5. Enhance the reach and performance of the public health system.

6. Formulation of a state IEC (Information, Education and Communications) programme, including leveraging the electronic media. (Contributing to disease prevention, control, nutrition, sanita-tion, personal hygiene and fitness)

7. Free health care access (basic and specialized) for poor and vulnerable groups and health in-surance for other sections for access to these services.

8. Major diseases such as TB, malaria and HIV/AIDS to be contained and prevented.

9. Eliminate malnutrition.

Primary healthcare

services are being

made accountable to

the local communities.


35 PSU-APRLP

The need to promote community health insurance schemes (e.g. SEWA’s

scheme) in order to provide health services at low cost to poor is a priority.

D. FOOD AND NUTRITION SECURITY PROGRAMMES

Major programmes that improve food and nutrition security are Public

Distribution system (PDS), Integrated Child Development Services (ICDS), and

Antyodaya Anna Yojana. PDS improves food security at household level

while ICDS helps in increasing nutrition of women and children. Antyodaya

Anna Yojana improves the food security of destitutes.

These programmes are being strengthened in order to reach the benefits to

the target population more effectively. In all the above pro-poor policies, the

special problems of disadvantage sections of SCs and STs are recognized.

URBAN POVERTY

Large -scale rural to urban migration of populations in search of more secure

livelihoods triggers urban poverty. Unskilled labour force living in

unorganised slums and working as manual labourers in construction jobs, as

domestic servants and as odd-job contract labour lead pathetic lives. While

some of these migrants reach urban settlements lured by the opportunities to

earn quick incomes, a large segment of rural to urban migrants are forced to

come to the urban areas due to severe drought conditions, causing loss of

livelihoods. In addition to causing high pressure on the planned civic

amenities, the migrants, especially the women and children, are exploited in

every conceivable way by vested interest groups. Unfortunately, there is a

lack of appropriate processes to measure and document the inflow of

migrants, whether seasonal or permanent.

Major programmes that

improve food and

nutrition security are

Public Distribution

system (PDS),

Integrated Child

Development Services

(ICDS), and Antyodaya

Anna Yojana.


36 PSU-APRLP

Concerning identification of the urban poor, the APUSP project has also adopted similar procedures by gathering information on seven non-economic parameters. Each parameter consists of six attributes indicating the condition from ‘worst’ to ‘better’. Accordingly, weightage scores are assigned to each attribute, i.e. from ‘100’ (worst condition) to ‘0’ (better condition). Thus, a household scoring an average of 100 will be given top priority under the programme Plan.

Example of Household Rating for BPL Qualification by APUSP Parameter Attributes Score

1. Roof Asbestos 60 2. Floor Bajri 80 3. Water No water supply 100 4. Sanitation Community dry latrine 80 5. Education level Middle pass 60 6. Type of Employment Semi skilled 80 7. Status of Children in a House Working & attending 80

Literacy classes Sometimes

----------------- Total 540

----------------- Average weighted score for a household = 540 / 7 = 77.1 i.e., future beneficiary


37 PSU-APRLP

MONITORING AND IMPACT ASSESSMENT

CHAPTER V

APPROACH TO THE PLAN

The last decade of the 20th Century has seen a visible shift in the focus of de-

velopment planning from the mere expansion of production of goods and

services, and the consequent growth of per capita income, to planning for en-

hancement of human well being. This approach is most succinctly captured in

the MDGs (millennium development goals) adopted by the United Nations in

its Millennium Declaration. Similar to MDGs, the Tenth Plan, for the first time,

sets monitorable targets for the Tenth Plan period (2002-07) and beyond.

Some of the major targets at the national level are: (1) Reduction in poverty

ratio by 5 percentage points by 2007 and 15 percentage points by 2012;

(2) Providing gainful and high-quality employment at least to the addition to

the labour force over the Tenth Plan period; (3) All children in school by

2003; all children to complete 5 years of schooling by 2007; (4) Reduction

in gender gap in literacy and wage rates by at least 50 per cent by 2007;

(5) Reduction of infant mortality rate (IMR) to 45 per 1000 live births by

2007 and to 28 by 2012; (6) Reduction of maternal mortality rate (MMR) to

2 per 1000 live births by 2007 and to 1 by 2012. The Vision 2020 docu-

ment of the GoAP reflects these goals.

Andhra Pradesh’s Poverty Reduction / Eradication Strategy and Action Plan

have emerged from this background.

The State has adopted a Plan Cycle Management Approach and created a

Logical Framework for its Poverty Reduction Action Plan.

MONITORING AND IMPACT ASSESSMENT

The State has adopted

a Plan Cycle Manage-

ment Approach and

created a Logical

Framework for its Pov-

erty Reduction Action

Plan.

39 PSU-APRLP

POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT

40 PSU-APRLP

INDICATORS OF POVERTY AND TARGETS

A baseline assessment of well being for A.P. that builds on the MDG’s, aug-

mented by the development goals of Vision 2020 as well as the national de-

velopment goals of the Tenth Five Year Plan has been done. Some of the in-

dicators that emerged through this process are given in the table below.

These serve as the intermediate indicators of the Action Plan Log Frame and

will be refined/replaced/augmented as the Draft Plan progresses towards

the Final Action Plan.

Development Goal Indicator Indicator in 2000 or closest year

AP:MDG 2015

Vision 2020 in 2020

Poverty and Nutrition Head count poverty ratio 21.6* 13.1 0

Under nutrition under age 5

37.7 24.6 Reduce malnutri-

tion

Child Labour 9.98 or 25 0

Universal primary education

Net enrolment ratio (primary)

90.3 99 100

Students reaching from grade 1 to grade 5

-- 95 90

Literacy rate (7+) 61.1 99

Reduce child

mortality

Infant mortality rate (per 1000 live births)

66 23.3 10

Under five mortality rate (per 1000 live births)

85.5 30.3 20

Improve maternal health

Maternal mortality ratio (per 100,000 live births)

154 75 --

Source: World Bank (2003) except head count ratio for 2000. * Deaton adjusted estimates.


Table: Selected Indicators and Targets for Andhra Pradesh

41 PSU-APRLP

MONITORING OUTCOMES AND INDICATORS

The log frame approach to the Poverty Reduction Action Plan is not a simplis-

tic force-fit of Goals, Targets and Indicators into prevailing formats of Logi-

cal Frameworks for development projects. It is rather, an adaptation of a

conceptual framework and enlarging its scope to encompass the complexities

of a Statewide Action Plan which subsumes sectoral Action Plans, District Ac-

tion Plans, Mandal Level Action Plans and community Level plans. It also pro-

vides for managing Intermediate Indicators in relation to targeted outcomes

across annual and other time horizons.

The Action Plan Log Frame, therefore, has features that go beyond a

conventional log frame and deploy management tools and strategies which

do not fall in the scope of standalone projects. Critical aspects, therefore,

include:

a) Combine the principles and best practices of Large Enterprise Man-

agement and Good governance.

b) A plan Cycle Management strategy that employs PERT/CPM Tools,

which make it possible to integrate sectoral, sub-sectoral and District

Plans into the Statewide plan.

c) Adapt develop Enterprise-wide tools specific to the state for Re-

source Planning, Management Information System and Forecasting.

d) Institutional Change Management and ‘Business Process Reengineer-

ing’ to ensure that the system is optimally geared to execute the Ac-

tion Plan.

These and other aspects of the plan emphasize the need to harness

universally valid management strategies and Tools with the clear understand-

ing that governance and the Development field are not isolated islands of

esoteric practices immune to management science. Equally much, the Log

Frame approach takes into account that the execution of the Action Plan itself

will alter the socio-economic realities it addresses.

A Statewide Action

Plan which subsumes

Sectoral Action Plans,

District Action Plans,

Mandal Level Action

Plans and Community

Level plans.


42 PSU-APRLP

The Action Plan, therefore, unfolds across a dynamic and complex en-

vironment, where changes in social structures, both desirable and dysfunc-

tional, have to be accounted for. In fact, given the complex social fabric of

the state, cultural factors and social change have to be part of the Action

Plan’s anchorages and references.

The State Wide Poverty Reduction Action Plan, in assonance with the

above, provides for sectoral plans, District plans, Mandal plans and Commu-

nity level plans to go beyond mere econometric modeling and incorporate

social capital and planned social change (Caste, gender and attitudes/

perceptions/practices in other areas which have a direct or indirect causal

relationship with poverty) as critical elements. This is especially so in the Com-

munity level, Mandal and District plans that emerge from and feedback into

the State Wide Poverty Reduction Action Plan.

The Log Frame approach to the Action Plan, in order to realize its

true potential, is complemented by a Plan Monitoring and Impact Assessment

System.

The Monitoring and Impact Assessment System of AP’s Poverty Reduc-

tion Action Plan assumes the following in common with its strategy and Log

Frame:

a) The Poverty Reduction Action Plan has to synergies with the overall

state plan and the Government of India’s Five Year Plans.

b) The Draft Action Plan has to become a “People’s Plan” in its final

form, through Participatory Processes.

c) It has to account for social change and social capital, however dif-

ficult these may be to monitor.

d) It has to be the key driver of the “bottom-up approach” to for-

mulate inclusive macro policies and planning for pro-poor growth.

It has to have, as an integral element, plan cycle management and

provide for two-way feedback cycles, spanning all MIS nodes of the Action

Plan dendogram, essential for midcourse correction.


The Log Frame ap-

proach to the Action

Plan, in order to realize

its true potential, is

complemented by a

Plan Monitoring and Im-

pact Assessment Sys-

tem.

43 PSU-APRLP

Although the main objective of the monitoring system is to trace the

progress in outcomes and impacts, both final (outcome and impact) and inter-

mediate indicators (input and output) are to be tracked. Monitoring final in-

dicators helps to judge progress toward the goals set. But final indicators are

the result of several factors, many of which are outside the control of policy

makers and programme administrators. Intermediate indicators, on the other

hand, generally change as a result of actions by the Government and other

agents. Moreover, final indicators generally change slowly over time while,

intermediate indicators change more rapidly, giving an indicators with which

is happening to some of its determinants.

Participatory Plan Monitoring and Impact Assessment is part of the

process of integrating stake holder participation not only in planning and im-

plementation but also in reviewing the progress of plan implementation and

evaluating outcomes. Such plan monitoring and Impact Assessment System will

facilitate Participatory Learning and Action (PLA) and becomes a Learning,

Capacity Building and Empowerment tool too.

In this context, it has to be noted that the Plan Monitoring and Impact

Assessment System (PMIAS) mooted in the Action Plan is a conceptual frame-

work which will have to be made concrete through further processes.

The conceptual framework for the PMIAS stresses the following.

· Going beyond monitoring inputs and outputs, to also focus on out-

comes.

· Incorporate the logical consequences of participation being a continu-

ous process and, therefore, the need to go beyond “snap shots” and

quantitative parameters.

Participatory Plan Moni-

toring and Impact As-

sessment is part of the

process of integrating

stakeholder participa-

tion not only in planning

and implementation but

also in reviewing the

progress of plan imple-

mentation and evaluat-

ing outcomes.


44 PSU-APRLP

• Identify mechanisms to assess the extent of facilitation by field staff for

community participation.

• Processes for data capture that translate the PMIAS also into a decision

support system and a key component of MIS at various levels.

The Action Plan addresses the multi-faceted nature of poverty, and

the scope for analyses it affords facilitates actions plans of missions, depart-

ments and districts, with step-by-step approaches to operationalization, ca-

pacity building needs assessment, focus of stakeholders role clarity and an-

nual plan to achieve short term targets based on intermediate indicators.

The PMIAS mooted in the Action Plan facilitates for primary stake-

holders a major stake in planning and implementation. The key tenet is that

communities must be empowered to take steps at their level and very poor

and other marginalized / resource poor sections have to be enabled to join

in the deliberations and negotiations. Participatory methodologies, stake-

holder role analysis, wealth / poverty ranking etc., create the spaces for this.

The PMIAS mooted in the Action Plan facilitates for primary stake-

holders a major stake in planning and implementation. The key tenet is that

communities must be empowered to take steps at their level and very poor

and other marginalized / resource poor sections have to be enabled to join

in the deliberations and negotiations. Participatory methodologies, stake-

holder role analysis, wealth / poverty ranking, etc., create the spaces for

this.

The Action Plan’s PMIAS also tries to correct the prevailing trend of

secondary stakeholders trying to gather information for decision making, and

in its place suggests primary stakeholder empowerment for planning imple-

mentation and monitoring through social audits.

The PMIAS mooted in

the Action Plan facili-

tates for primary stake-

holders a major stake in

planning and implemen-

tation. The key tenet is

that communities must

be empowered to take

steps at their level and

very poor and other

marginalized / resource

poor sections have to

be enabled to join in the

deliberations and nego-

tiations.


45 PSU-APRLP

The Community-level generation of information should be cross

checked through Random Audits at the District Level to ensure accuracy and

validate the processes. The Government and Secondary stakeholders have to

“Manage” the statewide Action Plan and its components by utilizing the

PMIAS.

In the AP Scenario, the Janmabhoomi initiatives create such capacities

and an enabling environment for primary stakeholder’s empowerment and

“People’s Planning”.

Sectoral lead actors and various departments and other constituents

of the Action Plan have to have six-monthly initiatives to consolidate learn-

ings through the PMIAS and from pilot initiatives and NGO initiatives to

benchmark best practices and introduce new practices. In tandem with Annual

Plans, departments have to undertake comprehensive reviews and introspec-

tions, and carry out Annual Random Evaluation of outcomes and processes.

T h e M I S

nodes sustained by

the PMIAs, spatial

planning and critical

evaluation of the

previous years plan

along projected ver-

sus actual outcomes

analysis, can enable

the next year’s plan

to be drawn up with

more insight.

VISION 2020 GOALS

ANDHRA PRADESH STATE

VISION 2020 GOALS

ANDHRA PRADESH STATE

PARTICIPATORY MONITORING IMPACT ASSESSMENT SYSTEM (PMIAS)

PARTICIPATORY MONITORING IMPACT ASSESSMENT SYSTEM (PMIAS)

FIVE YEAR STATEWIDE PLANFIVE YEAR STATEWIDE PLANFIVE YEAR STATEWIDE PLAN

FIVE YEAR TARGETS

INTERMEDIATE INDICATORS

MILLENIUM DEVELOPMENT

GOALS (MDG) 2015

MILLENIUM DEVELOPMENT

GOALS (MDG) 2015

ANNUAL PLANSANNUAL PLANSANNUAL PLANS

NEXT YEAR PLANSNEXT YEAR PLANSNEXT YEAR PLANS

TA

RG

ET

SFI

NA

L IN

DIC

AT

OR

S

COMMUNITY LEVEL PLANS & PMIAS

DEPARTMENTALDEPARTMENTALANNUAL PLAN ANNUAL PLAN

DISTRICT DISTRICT ANNUAL PLANANNUAL PLAN

MANDAL LEVEL PLANMANDAL LEVEL PLAN

SECTOR WIDE SECTOR WIDE ANNUAL PLANANNUAL PLAN

STATE WIDE ANNUAL PLANSTATE WIDE ANNUAL PLAN

In the AP Scenario, the

Janmabhoomi initiatives

create such capacities

and an enabling envi-

ronment for primary

stakeholder’s empower-

ment and “People’s

Planning”.


46 PSU-APRLP

The Poverty and Social Analysis and Monitoring Unit (PSAMU) will, in this

scheme, function as a macro-level integrate of PMIAS feedback cycles and

also analyze and monitor social change and social capital on institutional

linkages and the dependability and efficacy of MIS nodes at various levels.


47 PSU-APRLP

The PMIAS suggested by the Action Plan also helps manage indicators

through appropriate disaggregations at different levels. Aggregate state-

level indicators of the State-wide action plan can be effectively disaggre-

gated so that they become extremely sensitive to community-level and dis-

trict-specific contexts. Further, different sectoral plans will also be able to

disaggregate indicators (eg. by geographic areas, geo climatic zones, gen-

der, caste, etc.) and measure the functionality of its disaggregation type

through the PMIAS. A key feature of the PMIAS will be its ability to handle

qualitative and quantitative data and link data requirements to evaluation

methods.

OPERATIONALISING THE ACTION PLAN.

The Log Frame approach enables the Strategic Action Plan to be converted

to tactical and operational management, by following the steps of Project

Cycle Management. The macro-framework for strategic action plan provides

an overview of the PCM process. It suggests that at the four levels of plan-

ning, balancing loops provide the key intervention areas. The balancing and

reinforcing loops in the framework explain the dynamic nature of PCM. A

“big picture” is necessary to be understood for setting “lever” targets to

achieve the desired outcome at each level. The “levers” in the framework are

the critical points that can be adjusted for the desired outcome. The frame-

work also provides the dynamic linkages via loops to all other factors that

affect the targets and outcomes. The purpose of the strategic Action Plan is

then to identify the correct lever to adjust, by how much, and when, and to

assess or monitor whether the desired outcome is being obtained.

PROCESS DOCUMENTATION FOR STRENGTHENING

AND SUSTAINING THE ACTION PLAN

Reducing poverty requires multi-pronged action on various fronts and close

coordination between different departments. Effective implementation of the

PRAP will therefore require concerned departments to work closely and to

understand each others activities as partners. It also requires us to look at

outcomes, to understand processes and to revise them based on past

experience.

The purpose of the stra-

tegic Action Plan is then

to identify the correct

lever to adjust, by how

much, and when and to

assess or monitor

whether the desired

outcome is being ob-

tained.


48 PSU-APRLP

Current methods of documentation and existing monitoring and review

systems that are based on outputs are unlikely to support this. Reporting on

quantitative outputs does not allow us to reflect on mistakes made in the

past. Annual reports that provide figures on expenditure incurred over the

last financial year do not allow us to understand why the expenditure was

incurred, how effectively the money was spent and what lessons were learnt

in the process. To become wiser about the impact of actions and practices

requires us to carefully and systematically observe and reflect on key

processes, to consult others and learn how to steer them.

APRLP, a complex, multi-level programme, has initiated a process

documentation system to create information flow and allow for coordination

between different project levels and to learn from past experience. This

model has great relevance for AP’s Poverty Eradiation Action Plan (PEAP).

APRLP is documenting its processes at the grassroots level to provide

details of how project activities are being carried out to improve programme

effectiveness, increase adaptability to grassroots problems and to serve as

an authoritative source of reference for continuity, training, and

accountability. Learning from process documentation will also be used for

mainstreaming APRLP pilot initiatives effectively within the ongoing State

watershed programme.

Over a period of time such documentation provides a record of

exactly how the activity was conducted. Instead of residing in a few people’s

minds, details of important processes can now be accessed by anyone in the

project. Newly recruited persons can now have easy access to how activities

are to be performed, the quality of work expected from them and how they

can ensure this quality. When a person moves on from a post his/her efforts

can be acknowledged by successors in the form of processes put in place

and its merits and disadvantages and not just as quantitative outputs. Such

documentation will also make key actors/personnel involved with a plan,

programme or project accountable to the processes they are following.

Analysis of process documentation data is also being done to facilitate the

formulation of appropriate policy for more effective project/plan

management. Feedback from primary stakeholders about project/plan

activities

APRLP, a complex,

multi-level programme,

has initiated a process

documentation system

to create information

flow and allow for

coordination between

different project levels

and to learn from past

experience. This model

has great relevance for

AP’s PEAP.


49 PSU-APRLP

can now reach managers periodically. Instead of simply knowing quantitative

information about outputs- such as amount of Revolving Fund disbursed-

managers can now know more about actual outcomes, such as how far poor

persons have benefited and critical parameters in the process that are

required to achieve desired outcomes.

ANALYSIS FRAMEWORK FOR THE PEAP LOG FRAMES

Sustainable development being the foundation of any Poverty Eradication

Strategy, a Poverty Eradication Action Plan (PEAP) has to identify the link-

ages between key components of sustainable development and their inter-

faces with governmental and administrative structures and macro economic

determinants.

A basic premise of AP’s Poverty Eradication Action Plan is that it

should be tailored to the specific context of the State. This means working

within the advantages, synergies and boundaries of being a large state

within a large nation state. Agreeing on goals, targets and indicators

through participative processes requires a clear understanding of the

“Capital” available to address poverty reduction.

The log frame for AP’s Poverty Eradication Action Plan, therefore,

centres on the “Five Capitals” essential for sustainable development and also

“Political Capital” and builds

on their linkages.

The interrelationship/ link-

ages of each of these capi-

tals is taken into account by

each mission/ sector and ad-

dressed in terms of strengths

and vulnerabilities specific to

the sector/ mission. The action

plan log frame will also re-

flect the interfacing of these

capitals with policy, institu-

tions and processes.

The log frame for AP’s

Poverty Eradication Ac-

tion Plan, therefore,

centres on the “Five

Capitals” essential for

sustainable develop-

ment and also “Political

Capital” and builds on

their linkages.


50 PSU-APRLP

EVOLVING ACTION PLAN

LOG FRAMES

CHAPTER VI

As has been repeatedly emphasized, based on Vision 2020, all concerned

Missions and Departments in the State have drawn up strategies and action

plans. However, these strategies and action plans have to be integrated into

the State Wide Poverty Eradication Action Plan of SPEM in ways that facili-

tate good plan cycle management, appropriate macro policies and reforms

and participatory processes.

The Logical Frame work approach is a powerful tool to achieve this. It

demands step-by-step action on the part of Missions in drawing up sectoral

plans in conjunction with Departmental and Commissionerate plans.

In this process, it is useful to begin translating sectoral and departmental

strategies into policy matrices as a preliminary step to converting Action

Plans into Logical Framework formats.

Log Frames of Action Plans have to incorporate the following

components

• Identify final goals and outcomes against a timeline (in the case of AP, it

is Present to 2020)

• Identify milestone targets along the way to final goals (AP uses the GoI’s

Five Year Plan targets and their time-frames, as well as Millennium

Development goals with its milestone date of 2015)

• For each goal, identify strategies

• Elaborate action required to implement strategy.

• Identify lead actors and joint actors, and their linkages for each action

planned.

• Identify internal and external resources required at critical milestones

along the timeline.

• Identify current perceptions on internal and external enablers and

thwarters.

EVOLVING ACTION PLAN LOG FRAMES

The Logical Frame work

approach is a powerful

tool to achieve this. It

demands step-by-step

action on the part of

Missions in drawing up

sectoral plans in

conjunction with

Departmental and

Commissionerate plans.

52 PSU-APRLP

• Identify reforms required and impact of ongoing reforms

• Suggest juridical initiatives that are desirable

• Identify time horizons for review and midcourse corrections (AP has

Annual reviews, Five-yearly reviews coinciding with GoI’s Five Year Plans

and macro level review in 2015 on MDG indicators

The most critical component is Indicators. The use of Intermediate Input/

Output Indicators and Final Indicators and a strategic model for managing

indicators at the micro, meso and macro level are discussed elsewhere in this

document.

TAKING FORWARD THE LOG FRAME PROCESS

While drawing up the Log Frame of the Action Plan’s of SPEM, Missions and

Departments, it has to be kept in mind that they will be revised and refined

over a specified period, through participatory processes and shall be struc-

tured to reflect community- level, mandal-level and district- level planning

processes. They shall also provide for the two track approach of intense and

priority action in acute poverty pockets and regular state wide activity.

Through this participatory revision and refinement process of the sectoral and

departmental plans, mechanisms shall also be identified for annual reviews

at all levels of the plan implementation, right down to the community level,

and reliable feedback based on that in drawing up the next year’s plans.

The State Wide Action Plan of SPEM in a Log Frame format will also enable

the Cabinet, Finance Department and Planning Department to undertake

‘Sensitivity Analysis’ of the plan, keeping in view various externalities that

are likely to affect the plan context and plan appropriate ‘Coping Strate-

gies’.

Similarly, the effective use of Indicators on which there is overall agreement among all stakeholders, also facilitates tracking and monitoring the plan in a Log Frame mode.

POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES

While drawing up the

Log Frame of the Action

Plans of SPEM, Missions

and Departments, it has

to be kept in mind that

they will be revised and

refined over a specified

period, through partici-

patory processes and

shall be structured to

reflect community -

level, mandal - level

and district - level plan-

ning processes.

53 PSU-APRLP

Though the main objective of the PMIAS is to track progress in poverty reduc-

tion and impact of activities, it is also important to track indicators.

In order to do this, all stakeholders should have clarity of Intermediate Input

and Output Indicators and Final Outcome and Impact Indicators. Monitoring

final indicators helps assess progress towards the goals of the plan. How-

ever, final indicators are the result of several factors, many of which are out-

side the control of policymakers and plan managers. Intermediate Indicators,

as this document repeatedly stresses, change more rapidly in comparison

with final indicators which change slowly over time.

Therefore, tracking intermediate indicators is critical in making midcourse cor-

rections while the plan is underway. Not only is it more easy to collect infor-

mation on intermediate indicators, they are also extremely useful in plan

cycle management, especially when they refer to key impact outcome deter-

minants and/or when they vary across areas or groups overtime. This is es-

pecially important to a plan such as AP’s which is built on disaggregated

poverty analysis and spatial distribution modelling.

In this context, it has to be observed that part of the consensual/

participatory decisions required in the consolidation process is that of the

level of disaggregation of indicators, which is as important as the choice of

indicators. In the case of AP’s plan, this has to be done bearing in mind the

two track approach. Sub-projects within the plan to address acute poverty

pockets.

The section on managing indicators has already discussed the use of aggre-

gate State Level Indicators for gaining a bird’s eye view at the macro policy

level, and the need for progressive disaggregation of indicators at various

levels of implementation of the plan.

GETTING THE RIGHT PERSPECTIVE ON LOG FRAMES

Apart from the complexity of the processes outlined for translating strategies

and Action Plans into the Log Frame format, Missions and Departments also

have to note the supplementary tasks required with a Log Frame approach.


Tracking intermediate

indicators is critical in

making midcourse cor-

rections while the plan

is underway.

54 PSU-APRLP

Log frame approach is not a hold all solution. It has its strengthen and limita-

tions which need to be addressed.

Log Frame Strengths

• Facilitates good plan design

• Addresses past weaknesses in plan design

• Easy tool to learn and use

• Missions, Departments, District Authorities can use it internally for design

and appraisal processes.

• Can equally be used externally with consultants.

• Can anticipate plan implementation requirements across the plan timeline

• Provides a framework for plan evaluation

Log Frame Limitations

• Log Frames are not a substitute for other technical, economic, social and

environmental analysis.

• Overemphasizing objectives and externalities specified during design

can bring rigidity in plan management

• Log Frame approach requires a team building and convergence process

with good leadership at all levels, and focus on skill building.

Against the background of the strengths and limitations of the log

frame approach, there has to be a focus on preliminary activities before

evolving log frames and also supplementary analysis, modelling and initia-

tives.

We have already mentioned the need for sectoral and departmental

policy matrices. Similarly, analysis of institutional arrangements, resource

flow charts, and various overviews and analysis are essential for clarifying

components of the plan and achieving role clarity among all stakeholders.

Such analysis is also critical from the point of view that building capacity for

implementing the plan is not viable without having achieved role clarity

among lead actors, joint actors and other stakeholders.


Analysis of institutional

arrangements, resource

flow charts, and various

overviews and analysis

are essential for clarify-

ing components of the

plan and achieving role

clarity among all stake-

holders

55 PSU-APRLP

The following is an example of such an analysis in graphic form. Prepared

by the PSU as background work on the present document, it presents the Ag-

riculture and Livestock strategies which are part of the Water Missions Sec-

toral Plans, and feed into the Poverty Eradication Action Plan of SPEM.

Sample of graphic analysis required to supplement Log Frames

Consortium Approach

(for convergence)

Research Institutions

Line

Departments

Development agen-cies

User Group Formation

Awareness Creation

Social Mobilization

Pro-Poor strategies in Agriculture and Livestock

Crop diversification towards less water demanding crops

Watershed activities

Poverty Mission Objectives

Water Mission Objectives

Reduction in Poverty Regeneration of CPR

More fodder availability

Better live-stock quality

Soil Fertility Manage-

ment

Reduction in Soil Erosion NTFP

Increase in Rural income More Water Availability

Creation of better quality rural employment

Creation of rural infrastructure includ-

ing marketing

Better use of irrigation water

Surplus for processing and value addition Increase in Agricultural

productivity and im-proved post harvest proc-

essing

Capacity Building of user groups and autonomous scaling up

Input suppliers

Strengthening user groups

Better Water Harvesting

Increase in Rural Income


56 PSU-APRLP

D I S T R I B U T I O N O F M A N D A L S T O T O T A L L I T E R A C Y R A T E S ( 1 9 9 1 - 2 0 0 1 )

0

100

200

300

400

5000-10

10-20

20-30

30-40

40-50

50-60

60-70

70-80

80-90

90-100

1991

2001

D I S T R I B U T I O N O F M A N D A L S T O M A L E L I T E R A C Y R A T E S ( 1 9 9 1 - 2 0 0 1 )

0

100

200

300

400

5000-10

10-20

20-30

30-40

40-50

50-60

60-70

70-80

80-90

90-100

1991

2001

D I S T R I B U T I O N O F M A N D A L S T O F E M A L E L I T E R A C Y R A T E S ( 1 9 9 1 - 2 0 0 1 )

0

100

200

300

400

5000-10

10-20

20-30

30-40

40-50

50-60

60-70

70-80

80-90

90-100

1991

2001

Example of Spatial analysis for the Two-Track

Approach — Mahabubnagar – A high priority district

The progress has been uneven across the state; there is

major variation across districts, with literacy rates ranging

from 29.6 to 71.52 per cent in 1991 and 45.53 to 79.04

in 2001. There is a correlation between poverty indices

and illiteracy, as can be seen from the graphs. The districts

in the western part suffer both with poverty and low

literacy. This has implications for social development and

the outcome of development interventions.

The Mahbubnagar district is an extreme case, with a

very low level of educational performance. For example,

the district has a high dropout rate when compared to the

rest of the State (the District is 59.5 as against 34.5 for the

state). Further, the dropout rate is higher in the mandals

located in the western and eastern part of the district.

Traditionally, these are dry areas with high reliance on

migration. Another factor that concerns us is high variation

in drop out rate of SC children (65.8 against 41.3 for the

state), ST (80.8 as against 62.6 for the state) and girls.

Drop out rate is less in urban pockets and irrigated areas.


57 PSU-APRLP

BASELINE ANALYSIS

Policy matrices and the identification of goals have to have baseline studies

and analysis as their point of departure. The current context has to be under-

stood and All-India and India best figures compared with AP’s figures. The

process also leads to benchmarking on various aspects of the plan, especially

on goals and indicators. The following Tables present analysis in this direction

done by the PSU and also sourced from other studies. These are examples to

guide preparatory work to log frames by Missions and Departments.

Examples of comparative analysis of data:

S.No Developmental Parameters India Pre-sent

UMI Ref-erence

for India 2020

AP Pre-sent

Vision AP 2020

Remarks

1 Poverty as % of population below poverty line 26.00 13.00 15.80 0.00

2 Income distribution (gini index 100 = equality) 37.80 48.50

3 Unemployment rate % 7.30 6.80 6.70

4 Male adult literacy rate (%) 68.00 96.00 71.40 100.00

5 Females adult literacy rate (%) 44.00 94.00 51.50 100.00

6 Net primary school enrolment ratio 77.20 99.90 90.30 100.00

7 Public expenditure on education as % GNP 3.20 4.90 1.80

8 Life expectancy at birth in years 64.00 69.00 64.00 70.60

9 Infant mortality rate per 1000 live births 71.00 22.50 66.00 10.00

10 Child malnutrition as % of children under 5 years based on weight for age

45.00 8.00 37.70 Reduces to minimum

11 Public expenditure on health as % GNP 0.80 3.40 1.00

12 Commercial energy consumption per capita (kg of oil equiv.) 486.00 2002.00

13 Electric power consumption per capita (kwh) 384.00 2460.00 281.40

14 Telephones per 1000 population 34.00 203.00 29.40

15 Personal computers per 1000 population 3.30 52.30

16 Scientists & engineers in R & D per million population 149.00 590.00

17 Sectoral Composition of GDP in %

a. Agriculture 28.00 6.00 33.00 12.00

b. Industry 26.00 34.00 18.10 21.00

c. Services 46.00 60.00 49.00 67.00

18 International trade in goods as % of ppp GDP 3.60 35.00 All India

19 Foreign direct investment as % of gross capital formation 2.10 24.50 All India

20 Gross FDI as % of ppp GDP 0.10 3.50 All India


58 PSU-APRLP

Evaluation of Baseline data vis-à-vis MDGs and targets (Maria Louisa Ferreira 2003) Select Target and Indictors for AP:

Goal Indicator In-

cluded in

2000 indi-cator

or closest year

10th Plan 2007

10th Plan 2012

Vision 2020

(2010)

World BDG

(2015)

AP MDG

(2015)

Vision 2020

in 2020

Eradicate extreme poverty and hunger (Nutrition)

Under weight children under five years

MDG 37.7 24.6

Re-duce inci-dence of malnu-trition

Consumption of iodised salt Vision 2020 27.4 100%

Reduce Child Mortality

Under five mortality (per 1000 live births) MDG 85.5 26 30.3 20

Infant mortality (per 1000 lives births) MDG

Plan 66 45 28 20 23.3 10

Proportion of 1 year old children immunized against measles (%) MDG 56 100

Improve maternal health

Maternal Mortality Ratio (per 100,000 live births) MDG

plan 154 200 100 75

Proportion of births attended by skilled health personnel (%) MDG

Vision 2020

67.9 80 80 100

Fertility Rate V 2020 2.25 1.15

Proportion of women getting pregnant under the age of 21 years V 2020 37.3

Proportion of women using ante-natal care V 2020 89.7 100

Space between births V 2020 3

C o m b a t H IV/A IDS , malaria and other dis-eases

Contraceptive prevalence rate

MDG 0.6

Prevalence of death rates associ-ated with tuberculosis MDG 592

Proportion of TB cases detected and cured under DOTS MDG 0.45


59 PSU-APRLP

FIRST STAGE SAMPLES OF LOG FRAMES

The Log Frame of the State Wide Poverty Eradication Action Plan will include

all the MDG’s, Tenth Five Year Plan targets and Vision 2020 Goals, and re-

flect various sectoral and departmental Action Plans in analyzing risks, as-

sumptions and concerns. The Log Frame also indicates cross-sectoral depend-

encies and external and internal factors. The following are examples of the

matrices used for the purpose.

The sectoral and departmental Action Plans drawn up based on Vision 2020

Goals now need to be integrated with the Log Frame of the Action Plan of

the State Poverty Eradication Mission. The following are first stage examples

of sectoral Log Frame/Policy Matrix structures and are intended to only

guide Missions and Departments in evolving full scale Action Plan Log

Frames.

Final Outcome Indicators Intermediate indicators

Input-output activities/ strategies

Concerns

1. Poverty gap ratio

2. Proportion of population below $1 per

day

3. Share of poorest quintile in national con-

sumption

4. Prevalence of underweight of under 5s

5. Proportion of population below minimum

level dietary energy consumption

Productive

asset owner-

ship (land,

cattle and/

or other

physical

capital)

Well defined

safety net

programmes,

specific focus

on developing

disadvan-

taged groups

Need for

strengthening

area focused

approach

Weak link-

ages with so-

cial capital

Area Poverty and Equality From: MDG / IDG

Goal Reduce extreme poverty by half by 2015 Halve proportion of people suffering from hunger by 2015


The Log Frame also in-

dicates cross-sectoral

dependencies and ex-

ternal and internal fac-

tors.

60 PSU-APRLP

Area : Education From: MDG / IDG

Intermediate indicators Input-

output ac-

tivities/

strategies

Concerns

1.Ratio of literate female to males

2.Ratio of girls to boys in primary,

secondary & tertiary education

3.Female illiteracy rate

4.Proportion of seats held by

women in national parliament

1.Girls reaching grade 5

(cohort)

2.Girls school life expectancy

3.Repetition rates (by level of

schooling and gender)

4.Female control over earnings

Final Outcome Indicators

Final Outcome Indica-

tors Intermediate in-

dicators Input-output activities/ strategies Concerns 1. Net en-

rolment

ratio in

pri-

mary

educa-

tion

2. Propor-

tion of

pupils

com-

pleting

grade

4

(cohort)

1. % children 5-9

attending

school

2. % children ap-

pearing for

class VII exam

3. % Children

qualifying in

VII exam

4. Literacy rate

of 15-35

5. Teacher to pu-

pil ratio

6. Adult average

age of school-

ing

1. Classification of children in five categories

and developing strategies for each,

2. Focus on female literacy, special pro-

grammes to eradicate child labour,

3. Promotion of specific schemes for encourag-

ing enrolment in schools,

4. Focus on disadvantaged groups and loca-

tion,

5. promotion strategies for full enrolment in

primary education s

6. Classification of children in different age/

class groups

7. Focus on reduction in drop out and increase

retention through education volunteers at

primary school level

1. Skewed

availability

of schools

and teach-

ers

2. Involvement

of commu-

nity through

school edu-

cation com-

mittees and

panchayat

education

committees

Area Education From: MDG / IDG Goal Universal Primary Education by 2015


61 PSU-APRLP

Area : Health

Final Outcome

Indicators

Intermediate indicators Input-output activities/ strategies Concerns

1. Infant mortality

rate

2. Under 5 mor-

tality rate

3. Life expec-

tancy at birth

4. Low birth-

weight babies

(% of births)

5. Children un-

derweight (%)

6. Prevalence of

anaemia

7. Children with-

out respiratory

infection (%)

8. Children

stunted (%)

1. Immunization of children

(%) (measles, DPT3, all,

none)

2. Vitamin A supplementa-

tion for children

3. Treatment of diarrhoea

in children (%)

4. Treatment of ARI in

children (%)

5. Universalisation of PHC

care

6. Increasing Institutional

delivery / skilled birth

attendant

7. Ensure 3 post natal visits

within 1st week after

delivery

8. Reduction in incidence

of low birth weight ba-

bies

9. Elimination of death due

to natal tetanus.

1. Fixed day clinics at village by

ANM

2. Janani team (sarpanch, youth

rep, mother, anganwadi worker

3. Fixed dates throughout the coun-

try - National campaign

4. Communication for home-based

care and improving knowledge

on new born care.

5. Home available fluid, ORS

6. Communication on early detec-

tion & treatment (ANM/MO) &

management of sick newborns.

7. AP: Round the clock (RTCPHC);

Extra support to keep RTCPHC

open

8. Provision for gyn/ped services

once a week

1.Drop out of

measles

2.Community

ownership of

Janani com-

mittee

3.Strong supply

side

4.High NNMR

rate

5.Plateauing of

IMR

6.Low accep-

tance among

community

7.Training of

ANM on safe

delivery, new

born care

and prompt

referral.


62 PSU-APRLP

Goal : Improving Child Health

Final

Out-

come

Indica-

tors

Inter-

mediat

e indi-

cators

Input-output activi-

ties/ strategies

Concerns

1. Reduction in the in-

cidence of diar-

rhoeal deaths by

75% & episodes of

diarrhoea by 50%

2. Reduction in acute

respiratory infec-

tion death by 75%

3. Universal immuni-

zation of children

Eradication of po-

lio (by 2005)

4. Elimination of mea-

sles deaths

5. Reduce incidence

of malaria among

children

1. Home management of diarrhoea and ARI

2. Improve mother's knowledge on when to seek

referral of sick children

3. Ensure availability of ORS Improve skills of

ANM in identifying signs of dehydration and

pneumonia and prompt referral E

4. Early case detection and promote treatment

of malaria

5. Posting of pediatrician at sub-district level

(CHCs / Area Hospitals)

6. Promote personal hygiene (hand washing)

among household members, promote birth

spacing

7. Immunization

8. Nutrition

• Tribal and Backward areas: Networking with NGOs working in these areas and continued train-ing of the community health workers in tribal areas with special focus on malaria, epidemic man-agement and safe delivery

• Strengthen the MIS through computerization of data • Download MPHS data and cleanse it for use by ANMs • Generate output using personal digital assistant with ANMs or computer at PHCs • Systems study & development of software for computerization of PHCs, DM&HO offices, Com-

missioner of Family Welfare & DH office • Strengthen the functioning of community advisory boards / community based structure to partici-

pate in planning processes and monitor services provided • Mobilize community based groups for various IEC activities including government incentives avail-

able • Strengthen SHG to create corpus funds for emergency situations


63 PSU-APRLP

Area : Health From MDG

Final Out-come Indica-

tors

Intermediate indicators Input-output activities/ strategies Concerns

1. Maternal

morta l i ty

ratio

2. Proportion

of births

at tended

by skilled

h e a l t h

personnel

1. I n s t i t u -

tional de-

livery

2. F a m i l y

p l a n n i n g

operations

3. Spacing

4. Use of

m o d e r n

contracep-

tives (%)

5. Age at

birth of

first child

6. % o f

women re-

c e i v i n g

C o m p r e -

hensive an-

t e n a t a l

care

7. Nutrition

1. Strong policy; analysis of infra-

structure availability key to

achieve; financial support pro-

vided through formal policy and

budget support

2. 3 years gap between birth,

strong awareness campaigns ac-

cess to multiple methods of con-

traceptives, strong monitoring

3. Increase age of marriage from

18 -21 years, workshops for

adolescent girls, mothers, sar-

panches.

4. Focus on role of ANMs is critical

link; Para workers in critical

(tribal and backward) areas.

5. National maternity benefit

scheme

6. 3 visits to institutional checkups

which includes nutritional coun-

seling

7. IEC through community advisory

boards or other community

based structures on birth pre-

paredness and complication

readiness

1. Mobility in time of

urgency;

2. Analysis of access

mandal- wise;

3. Focus on low access

mandals;

4. Availability of SHGs

in focus area; special

monitoring in focus

area

5. Very strong data-

base analysis and to

be upgraded very

regularly

6. Availability of Gy-

naecologist

7. Critical linkage with

ICDS

8. Increase institutional

deliveries Skilled at-

tendance at birth for

all domiciliary deliv-

eries

9. Increase in accessibil-

ity to quality services

for medical termina-

tion of pregnancies

(including strict im-

p lementat ion of

PNDT Act) and for

treatment of RTI/STI

and prevention of

Goal : Reduce maternal mortality ratio by 3/4th by 2015


64 PSU-APRLP

Area : Environmental Sustainability From MDG

Goal : Halve proportion of people without sustainable access to safe drinking water by 2015

Final Outcome Indicators

Inter-mediate

indi-cators

Input-output activities/ strategies Con-cerns

1. Proportion of population

with sustainable access to

an improved water source

1. Water User's Association and Participatory

Hydrological Management of irrigation

sources.

2. Water Mission to facilitate assured Drinking

Water to communities.

3. Water and sanitation cover to be demand

driven as community owned and maintained.


with access to improved

sanitation


with access to secure ten-

ure (urban/rural disaggre-

gation

1. Rural Sanitation is given priority in Janmab-

hoomi and individuals as members of SHGs are

being covered in the proposal.

Goal : A significant improvement in lives of at least 100 million slum dwellers

Area : Environmental Sustainability From MDG Goal : Integrate principles of sustainable development into country policies and program and reverse the loss of environmental resources

1. Change in land area cov-

ered by forest

2. Land area protected to

maintain biological diver-

sity

3. GDP per under of energy

use

4. Carbon dioxide emissions

per capita

1. Strong policy for conservation and protection of

forest areas. Joint forest management with com-

munity participation and saturation of fringe ar-

eas.

2. A 10 year action plan to saturate waste lands

including forest lands.

3. Rural electricity coverage to 100% habitations.

4. Minimum assured electricity supply for agricul-

ture purpose.

5. LPG assurance to women SHGs in rural and

urban areas


65 PSU-APRLP

Area : Macro economic stability From MDG

Final Outcome Indi-

cators

Interme-

diate in-

dicators

Input-output activities/ strategies Concerns

1.Unemployment rate

of 15-24 years

2.Per capita economic

growth rate

3. U n e m -

ployment

4. Inflation

5. Exchange

rate fluc-

tuation

6. F i s c a l

deficit

Increase availability of skilled man-

power by

1. Establishing more technical insti-

tutions

2. Enhancing capacity of existing

institutes

3. Promotion of TTDC as a nodal

agency to integrate all trginings

(through networking),

4. Promotion of cluster develop-

ment approach

5. Focus on identified growth en-

gines

6. creating employment genera-

tion opportunities for SHG (6)

Promotion of special corpora-

tions to focus on specified target

groups

Linkages & conver-

gence among depts.

and Missions

1.Common platform

for focused interac-

tions

2.C o m b i n e d /

integrated data

c o l l e c t i o n /

association

3.Taking SHG to

higher level of em-

ployment, Promo-

tion/strengthening

of micro-markets

4.Effective /fast

credit support

1.Food consumption

variability

2.Income variability

3.Malnutrition preva-

lence

4.Death rates due to

violence

1.U n e m -

ployment

rate

2.Variabil-

ity in

produc-

tion of

chief sta-

ple s

•

Area : Security From: IDG


66 PSU-APRLP

Objectives Intermediate outputs Indicators Final Out-

puts Increased

synergy in

the activities

of the differ-

ent stake-

holders of

Rural Devel-

opment in

Andhra

Pradesh.

Increased number of multi

disciplinary networks,

comprising line depart-

ments, development

agencies, research insti-

tutes, development pro-

jects etc addressing spe-

cific issues of farming sys-

tem through to Consor-

tium approach

Increased number of

farming system pro-

grammes where NGOs,

farmer groups and Gov-

ernment closely cooper-

ate and complement

each other’s roles

All seven Water User De-

partments develop effec-

tive coordination mecha-

nisms in order to effi-

ciently utilize available

water

The respective depart-

ments of growth engines

devise strategies in order

to exploit the compara-

tive advantage and in-

crease rural employment

potential

Active exchange of information be-

tween the stakeholders in work-

shops and through sharing data-

bases and reports

Increased influence of Small and

Marginal farmer groups, NGOs on

the agenda of research institutions

Increased participation of farmers’

organizations in testing out promis-

ing technologies

Records of annual water budgets of

user departments planned every

year

Communications of NGOs actively

involved in providing support to the

Govt in preparing water budget at

the local level

Cropping pattern recommended is

appropriate to the water budget

which is unique to each watershed

Annual water audit at the water-

shed level done

30% increase in employment gen-

erated by investing in growth iden-

tified growth engines.

All the stakeholders are aware of

the pros and cons of a globalized

economy and its impact on rural

communities especially the poorer

sections

Increased

synergy in the

activities of

different

stakeholders

of Rural De-

velopment

where in the

stake holders

complement

each others

works

All activities

and strate-

gies and co-

ordination ef-

forts are fi-

nally linked

to overriding

policies and

guidelines

Indicators, which have been given above, are primarily the process indicators, which help in monitoring the processes that

goes in attaining the objectives.

INDICATORS FOR PRO POOR STRATEGIES IN AGRICULTURE AND LIVESTOCK


67 PSU-APRLP

Objectives • Intermediate outputs • Indicators Final Outputs

Increased availability of technol-ogy and in-puts and as-sets for inte-grated farming systems

• Increased integration of agriculture and livestock programmes

• Healthier and better quality of live-stock maintained at the village level by farmers

• Emphasis on Participatory Technol-ogy Development (PTD) by research institutions for location specific re-search on farming systems through the consortium approach

• Emphasis on crop diversification to-wards less water demanding crops like millets along with cereals

• Increase in soil fertility in marginal lands through increase in pulse culti-vation and biological nitrogen fixa-tion

• Emphasis on regeneration and con-servation of Common Property Re-sources (CPR) as a necessary base for livestock and farming systems development

• Water conservation measures with more emphasis on reducing erosion primarily through increase in ground cover by flora as well as low cost local structures constructed by the local communities with community knowledge

• Reduction in erosion of soil due to watershed management and in-crease in natural regeneration

• Rural assets in the form of increased better quality cattle, and small rumi-nants and poultry become a part of the farming system

•Fodder cultivation taken up in at least ___ No. of farms as a part of the initiative to increase farm diversity and fodder availabil-ity

•Better quality fodder that can withstand wider variation in cli-matic conditions have been introduced and are being cultivated by farmers

•Fodder requirement on a watershed basis is assessed and is known to all the stakeholders in the watershed for making fodder plans

•Agricultural residues are effectively recy-cled for fodder pur-pose through enriching them through low cost silage preparation

•___% increase in the area and ___% in-crease in production of millets and pulses and similar less water de-manding crops

•Milk and other dairy production increased by____% and thereby enhancing the income of the rural community

• Farmers, Farmer Groups are aware of the dif-ferent technolo-gies of farming systems and are use it depending upon their spe-cific needs

• Increased diver-sity in farm enter-prises integrating crop and live-stock.

• Large area of CPR regenerated and the outputs of these CPR are being used sus-tainbly by the farmers

• Fertility status of the farms in-creased due to higher level of organic matter availability

• Reduction in loss of food grains due to improved and low cost grain storage methods adopted


68 PSU-APRLP

Objectives Intermediate outputs Indicators Final Outputs

I n c r e a s e d

availability

of social

methods in

organiz ing

platforms at

wa te r s hed

level, includ-

ing gender

The records of technologies tested

and adapted in the PTD process

address social and process

aspects of PTD such as gender

division of labour, and gender

specific perceptions about

technologies available

Availability of descriptions of

social approaches promoted in

agriculture, available in hand

books or field manuals of NGOs

and Governments departments

Application of these methods by

N G O s a n d d e p a r t m e n t s

autonomously

Farmer groups, NGOs and

Government departments use

include social methods in their

planning

Equitable decision making, ac-

cess and control of resources

by men and women

Gender and

Social meth-

ods main-

streaming in

all agricul-

ture and

watershed

plans

Reduction in

e x t e r n a l

chemical in-

puts at the

farm level

thereby re-

ducing the

cost of culti-

vation as

well as in-

c r e a s i n g

profitability

Reduction in the use of chemical

pesticides and fertilizers and

increasing substitution by natural

fertilizers resulting in enhanced

soil fertility and increased organic

matter

Reduction in the use of pesticide

resulting in improved ecological

balance in agro eco systems

__% Increase in farmers in-

come due to reduction in costs

Increase in biodiversity by __

% due to reduction in pesticide

usage

Enhanced bio diversity due to

regeneration and conservation

of CPR by rural communities

___ No. of people facilitated

in CPR regeneration

Farmers apply __% more or-

E n h a n c e d

farm income

leading to

reduction in

poverty

I m p r o v e d

Rural and

Agro eco-

logical con-

ditions


69 PSU-APRLP

Objectives Intermediate

outputs Indicators Final Outputs

Empower-

ment of

women and

small and

marginal

farmers

through so-

cial learn-

ing proc-

esses

Social coher-

ence is

strengthened

among rural

communities

among men

and women

Social reali-

zation of

women as

equal role

and as part-

ners in agri-

culture devel-

opment

Collective decision making on input pur-

chase, pest and disease management and

marketing

Women are empowered by increasing

their knowledge and hence more self re-

spect and respected by others because of

their capacity to effectively contribute to

farming systems

Mobility of women increased and they visit

agricultural knowledge centres, training

centres and regional farmer meetings

Women are able to pursue a more eco

friendly approach to agriculture in spite of

pressure of pesticide dealers and husbands

to go back to chemical farming

Women gain more confidence in their own

capacity to improve agriculture

Small and mar-

ginal farmers

and especially

women are able

to contribute sig-

nificantly and

confidently to im-

provement of

farming systems

and thereby im-

proving their own

livelihood


70 PSU-APRLP

71 PSU-APRLP

THE WAY FORWARD

CHAPTER VII

While it is true that various departments and Commissionerates with a stake

in the State’s Poverty Eradication Action Plan have clearly stated strategy

papers and action plans, there is need to integrate these into a Statewide

Poverty Eradication Action Plan to be led by the SPEM. Further, cross-sectoral

processes for synergised planning, optimising resource use and synchroniza-

tion of activities too will have to be coordinated. There is also the need to

evolve a ‘final’ Action Plan, which incorporates sectoral Policy matrices and

reflects the models, tools and methodologies recommended in this draft docu-

ment.

For this to happen, missions and Departments need to bring to the

public domain their long term plan (2020) with interim targets (Five year

plan targets and 2015 MDG targets). Putting these plans, with interim indi-

cators, into a Log Frame format is essential.

Departmental and Mission Action Plans will have to be discussed at

the districts level and also at representative community levels. Mandal, dis-

trict and State level workshops involving civil society, and partner/ resource

organisations, academics, advocacy and policy groups etc., are required to

finalize sectoral and Departmental Action Plans. In the process final sets of

indicators can be adopted.

The ‘Final’ Action Plan Log Frames of Missions and Departments will:

• Be integrated with the Action Plan log frame of SPEM.

• Provide the basis for State level annual review and ‘next year plan’

process.

• Provide the basis for decentralized planning and review as per the

model recommended in the present document.

• Provide the framework for the Poverty Monitoring and Social Analysis

Unit (PSAMU) to carryout its mandated responsibilities.

THE WAY FORWARD

Missions and Depart-

ments need to bring to

the Public domain their

long term plan (2020)

with interim targets

(Five year plan targets

and 2015 MDG tar-

gets)

72 PSU-APRLP

The Advantage of log frame approach to planning

The Logical Frame work exercise to be undertaken by all Missions, Depart-

ments and Commissionerates with stakes in the State’s Poverty Eradication

Action Plan, facilitates a very dynamic process in monitoring of goals and

outcomes. The Intermediate Output Indicators linked to target- driven activi-

ties play a crucial role in Annual Reviews, enabling planners to zero down on

the factors that enabled planned outcomes and outputs, and those that pre-

vented them being realized.

The next year’s perspective plan could be much more localized and

‘debugged’ as a result of the above process. The Log Frame approach,

therefore enables a high order of detailing and spatio-temporal specificity,

without losing sight of the long-term goals. In this process, it has to be kept in

mind that final indicators involve several factors and complexities which are

beyond the control of policy makers and plan implementers. Similarly, Inter-

mediate Indicators cannot be frozen, since they will change through the very

implementation of the Action Plan.

Draft Document: “Consolidating AP’s Pov-

erty Reduction Action Plan”

Conversion of Action Plans of other Missions and Depart-

ments into Log Frame format

Draft Action Plan Log Frame of SPEM

Consolidate Intermediate (input-output) Indicators

and Final (outcome-impact) Indicators

Consolidate Intermediate (input-output) Indicators and Final (outcome) Indicators for

Sectoral Action Plans

‘Final’ Action Plan Log Frame of SPEM ‘Final’ Sectoral Ac-

tionPlans (ActionPlan Log Frames of Mis-

sions)

ActionPlans of Depts., Commission-

erates in Final Log Frame form

New Methodologies, Tools, Processes etc.

Participatory Process, Public Discussions

PSAMU

Link to Vision 2020, MDG

2015 10th Five Year Plan

OVERVIEW OF THE WAY FORWARD

The Intermediate Out-

put Indicators linked to

targets driven activities

play a crucial role in

Annual Reviews ena-

bling planners to zero

down on the factors

that enabled planned

outcomes and outputs.

POVERTY ERADICATION ACTION PLAN VII. THE WAY FORWARD

73 PSU-APRLP

MONITORING AND REVIEW The Monitoring and Review mechanism of the Poverty Reduction strategy of

AP has already taken shape during the past four to five years. In adopting

a log frame approach to the Action Plan, it will also be possible to incorpo-

rate a Plan Monitoring and Impact Assessment System (PMIAS). The PMIAS

method will facilitate both convergence at the community level and the man-

agement of challenges of a complex system at the State Level.

The Mission mode, in such a situation, facilitates inputs of the stake-

holders and various departments falling within the purview of each sector,

and also the managing of externalities to achieve optimum results.

A central feature of the Monitoring and Impact Assessment System

and the Annual Review and Next Year Planning process is the recognition of

the apex role of the State Poverty Eradication Mission in leading the Poverty

Eradication Action Plan. In this role, it will also have a coordination role; in

the review of the annual plan performance of other Missions and Depart-

ments to the extent of their relevance and impact on the Poverty Eradication

Action Plan Log Frame. SPEM will be supported in this process by PSAMU in

its mandated role and the PSU-APRLP as a Resource Agency.

A central feature of the

Monitoring and Impact

Assessment System and

the Annual Review and

Next Year Planning

process is the recogni-

tion of the apex role of

the State Poverty Eradi-

cation Mission in leading

the Poverty Eradication

Action Plan.


74 PSU-APRLP


75 PSU-APRLP

AP Andhra Pradesh APRLP Andhra Pradesh Rural Livelihoods Programme AP-RPRP Andhra Pradesh Rural Poverty Reduction Project APSRAC Andhra Pradesh State Remote Sensing Applications Centre APUSP Andhra Pradesh Urban Services for the Poor BPL Below Poverty Line BPR Business Process Reengineering CM Chief Minister CPR Common Property Resources DFID Department For International Development DPAP Drought Prone Area Programme DPIP District Poverty Initiative Project GDP Gross Domestic Product GIS Geographical Information System GoAP Government of Andhra Pradesh GoI Government of India

ICDS Integrated Child Development Services

ICM Institutional Change Management ICT Information and Communication Technology IDG International Development Goals IEC Information, Education and Communications IG Intermediate Goals IT Information Technology M&E Monitoring & Evaluation MDG Millennium Development Goals MIS Management Information System MPHS Multi - Purpose Household Survey

Abbreviations

76 PSU-APRLP

NGO Non-Government Organisation

NRM Natural Resource Management

PCM Project Cycle Management

PDS Public Distribution System

PEAP Poverty Eradication Action Plan

PHC Primary Health Centers

PHM Participatory Hydrological Management

PIP Participatory Identification of Poor

PLA Participatory Learning and Action

PMIAS Plan Monitoring and Impact Assessment System

PPA Participatory Poverty Appraisal

PPMIA Participatory Plan Monitoring and Impact Assessment

PSAMU Poverty and Social Analysis and Monitoring Unit

PSU Programme Support Unit

PTD Participatory Technology Development

RD Rural Development

SC Scheduled Caste

ST Scheduled Tribe

SERP Society for Elimination of Rural Poverty

SGE Selected Growth Engines

SHG Self Help Group

SIP Slum Improvement Programmes

SPEM State Poverty Eradication Mission

SWPRAP State Wide Poverty Reduction Action Plan

UAE Universalisation of Adult Education

UEE Universalisation of Elementary Education

UG User Group

77 PSU-APRLP