Institutional Assessment of Self Help Groups (SHGs). Mapping-cum... · INSTITUTIONAL ASSESSMENT OF SELF HELP GROUPS (SHGs) AND SHG-FEDERATIONS IN BOLANGIR, KANDHAMAL AND RAYAGADA

Institutional Assessment

of Self Help Groups (SHGs)

and SHG-Federations

In Bolangir, Kandhamal and Rayagada

Districts of Odisha

November, 2012

Technical and Management Support Team, Odisha

Ma Mother Teresa SHG, Brudipada Village, Kandhamal District

Institutional Assessment of SHGs and SHG-Federations in Bolangir, Kandhamal and Rayagada Districts of Odisha 2

INSTITUTIONAL ASSESSMENT OF

SELF HELP GROUPS (SHGs) AND SHG-FEDERATIONS IN BOLANGIR, KANDHAMAL AND RAYAGADA DISTRICTS OF ODISHA

The assessment and report on “Institutional Assessment of Self Help Groups (SHGs) and SHG-Federations” is contributed by:

Team TMST Team from ACE Consultancy Technical guidance from Social Development Advisor, DFID Support from Department of Women and Child Development (DWCD) and NOP Team from Kandhamal, Rayagada and Bolangir, Government of Orissa

All those whom we have involuntarily forgotten, please accept our sincere apologies along with our thanks.

NOVEMBER, 2012

TECHNICAL AND MANAGEMENT SUPPORT TEAM, ODISHA


CONTENTS

ABBREVIATIONS ............................................................................................................................................ 6

SUMMARY OF FINDINGS ............................................................................................................................... 7

1. OVERVIEW & METHODOLOGY OF THE ASSESSMENT ......................................................................... 12

1.1 Community Process (CP) for HNWASH: Specific Context ............................................................... 12

1.2 SHGs & SHG-Federations in CP Focused Districts of Odisha ........................................................... 12

1.3 Need & Purpose of the Assessment ................................................................................................ 13

1.4 Objectives ........................................................................................................................................ 14

1.5 Scope of Work ................................................................................................................................. 15

1.5.1 Geographic Scope of Work ...................................................................................................... 15

1.5.2 Thematic Scope of Work ......................................................................................................... 15

1.6 Methodology ................................................................................................................................... 16

1.6.1 Design of the Assessment ....................................................................................................... 16

1.6.2 Data Collection ........................................................................................................................ 16

1.6.2.1 Primary Data Collection....................................................................................................... 16

1.6.2.2 Secondary Data Collection .................................................................................................. 17

1.6.2.3 Data Entry, Analysis and Reporting ..................................................................................... 18

1.7 Limitations ....................................................................................................................................... 18

CHAPTER - II ................................................................................................................................................. 19

2. SELF HELP GROUPS (SHGs): FINDINGS OF THE ASSESSMENT ............................................................. 19

2.1 Formation & Year of Operation of SHGs ......................................................................................... 19

2.2 Purpose of Forming SHGs ................................................................................................................ 20

2.3 Logistics & Infrastructures with SHGs ............................................................................................. 20

2.4 Bank Account of SHGs ..................................................................................................................... 20

2.5 Membership Details of SHGs........................................................................................................... 21

2.6 Services and Activities of SHGs ....................................................................................................... 23

2.7 Engagement & Interest of SHGs in HNWASH .................................................................................. 25

2.8 Governance & Management Practices of SHGs .............................................................................. 25

2.9 Training Undergone and Conducted by SHGs ................................................................................. 26

2.10 Gradation of SHGs ........................................................................................................................... 27

2.11 Problems/Constraints Faced by SHGs ............................................................................................. 27

2.12 Future Priorities and Expectations of SHGs .................................................................................... 27


CHAPTER - III ................................................................................................................................................ 28

3. GRAM PANCHAYAT LEVEL FEDERATIONS (GPLFs): FINDINGS OF THE ASSESSMENT .......................... 28

3.1 Formation & Year of Operation of GPLFs ........................................................................................ 28

3.2 Purpose of Forming GPLFs .............................................................................................................. 29

3.3 Logistics & Infrastructures with GPLFs ............................................................................................ 30

3.4 Bank Account of GPLFs .................................................................................................................... 30

3.5 Executive Committee (EC) of GPLFs ................................................................................................ 30

3.6 Services and Activities of GPLFs ...................................................................................................... 31

3.7 Engagement & Interest of GPLFs in HNWASH ................................................................................ 32

3.8 Governance & Management Practices of GPLFs ............................................................................. 33

3.9 Training Undertaken and Conducted by GPLFs ............................................................................... 33

3.10 Gradation of GPLFs .......................................................................................................................... 34

3.11 Problems/Constraints Faced by GPLFs ............................................................................................ 34

3.12 Future Priorities and Expectations of GPLFs ................................................................................... 34

CHAPTER - IV ............................................................................................................................................... 35

4. BLOCK LEVEL FEDERATIONS (BLFs): FINDINGS OF THE ASSESSMENT ................................................. 35

4.1 Formation of BLFs ........................................................................................................................... 35

4.2 Purpose of Forming BLFs ................................................................................................................. 36

4.3 Logistics & Infrastructures with BLFs .............................................................................................. 36

4.4 Bank Account of BLFs ...................................................................................................................... 37

4.5 Executive Committee of BLFs .......................................................................................................... 37

4.6 Services and Activities of BLFs......................................................................................................... 39

4.7 Engagement & Interest of BLFs in HNWASH ................................................................................... 40

4.8 Governance & Management Practices of BLFs ............................................................................... 40

4.9 Training Undertaken and Conducted by BLFs ................................................................................. 41

4.10 Gradation of BLFs ............................................................................................................................ 42

4.11 Problems/Constraints Faced by BLFs .............................................................................................. 42

4.12 Future Priorities and Expectations of BLFs ...................................................................................... 42

CHAPTER - V ................................................................................................................................................ 43

5. DISTRICT LEVEL FEDERATIONS (DLFs): FINDINGS OF THE ASSESSMENT ............................................. 43

5.1 Formation and Year of operation of DLFs ....................................................................................... 43

5.2 Goal & Objectives of DLFs ............................................................................................................... 44

5.3 Logistics & Infrastructures with DLFs .............................................................................................. 45

5.4 Bank Account of DLFs ...................................................................................................................... 45


5.5 Executive Body of DLFs.................................................................................................................... 45

5.6 Services and Activities of DLFs ........................................................................................................ 46

5.7 Engagement & Interest of DLFs in HNWASH................................................................................... 46

5.8 Governance & Management Practices of DLFs ............................................................................... 47

5.9 Training Undertaken and Conducted by DLFs ................................................................................. 47

5.10 Gradation of DLFs ............................................................................................................................ 48

5.11 Problems/Constraints Faced by DLFs .............................................................................................. 48

5.12 Future Priorities and Expectations of DLFs ..................................................................................... 48

CHAPTER - VI ............................................................................................................................................... 50

6. STRENGTH AND WEAKNESS MATRIX OF SHGs AND SHG-FEDERATIONS ............................................ 50

6.1 Strengths and Weaknesses of SHGs and SHG-Federations ............................................................. 50

CHAPTER - VII .............................................................................................................................................. 53

7. RECOMMENDED MEASURES FOR UNDERTAKING SHG-PLA INTERVENTION UNDER CP .................... 53

7.1 Recommended Measures for Engagement of SHGs in PLA on HNWASH ....................................... 53

7.2 Recommended Measures for Engagement of GPLFs in PLA on HNWASH ...................................... 53

7.3 Recommended Measures for Engagement of BLFs in PLA on HNWASH ........................................ 53

7.4 Recommended Measures for Engagement of DLFs in PLA on HNWASH ........................................ 53

7.5 Recommended Measures for Fund Transfer and Management ..................................................... 54

ANNEXURES ................................................................................................................................................................. 55

Roles & Responsibilities of SHG Federations in Odisha ............................................................................................... 55

Criteria Applied for Gradation of SHG ......................................................................................................................... 56

Criteria Applied for Gradation of SHG Federation ...................................................................................................... 58

TABLES Table 1: Sample size for SHG assessment study in the three districts of Odisha ........................................................ 17

Table 2: Tools & Techniques of Data Collection .......................................................................................................... 17

Table 3: Amount of savings generated by SHG ........................................................................................................... 23

Table 4: Percentage of SHGs Engaged in Other Development Activities .................................................................... 24

Table 5: Gradation of SHGs ......................................................................................................................................... 27

Table 6: Gradation of GPLFs ........................................................................................................................................ 34

Table 7: Gradation of BLFs........................................................................................................................................... 42

Table 8: Month and Year of formation of SHG Federation ......................................................................................... 43

Table 9: Perceived Criteria for electing members to Working Committee of DLF ...................................................... 45

Table 10: Gradation of DLFs ........................................................................................................................................ 48

Table 11 Key Strengths and Weakness of the SHGs and SHG-Federations ................................................................. 50


ABBREVIATIONS

ADM Additional District Magistrate ICDS Integrated Child Development Service

APL Above Poverty Line MOU Memorandum of Understanding

ASHA Accredited Social Health Activist MPW Multi Purpose Worker

AWC Anganwadi Centre MVSN Mahila Vikash Samabaya Nigam

AWW Anganwadi Worker NABARD National Bank for Agriculture and Rural

Development

BDO Block Development Officer NGO Non Government Organisation

BLF Block Level Federation OBC Other Backward Caste

BPL Below Poverty Line PA Project Assistant

BRP Block Resource Person PDS Public Distribution System

CDPO Child Development Project Officer PLA Participatory Learning Action

CO Community Organizer RD Rural Development

CP Community Process RRB Regional Rural Bank

DHFW Department of Health and Family

Welfare

SC Scheduled Caste

DLF District Level Federation SEFA SHG Energy Franchise Arrangement

DSWO District Social Welfare Officer SGSY Swarnajayanti Gram Swarozgar Yojana

DWCD Department of Women & Child

Development

SHG Self Help Group

EC Executive Committee ST Scheduled Tribe

FGD Focused Group Discussion TA Technical Assistance

GP Gram Panchayat THR Take Home Ration

GPLF Gram Panchayat Level Federation VHND Village Health and Nutrition Day

HB High Burden

HNWASH Health, Nutrition, Water, Sanitation &

Hygiene


SUMMARY OF FINDINGS

Communities in Odisha are diverse and complex but catalysed into action are a powerful driving force for the

social and behavioural change that underpins improved health and nutrition. A major focus of the OdishaHealth

Nutrition Sector Plan(OHNSP) is to support community processes that inform, mobilise, and create the capacity,

solidarity and leadership for better health, nutrition, water, sanitation and hygiene(HNWASH) outcomes.

Odisha’s network of over four lakh women’s Self Help Groups are significant social capital to be built upon. This

institutional assessment was undertaken to gauge the potential of SHGs and their federations as platforms for

community mobilisation for HNWASH broadly, and specifically in implementing a participatory learning and

action programme.

The study was undertaken in Bolangir, Kandhamal, and Raygada Districts which are the first three districts where

OHNSP will implement its participatory learning and action cycle intervention. The assessment took an

exploratory approach, drawing on secondary data to map the presence of SHGs and their federations, as well as

undertaking primary data collection. In each of the 3 selected districts, four (30%) blocks were included for

primary investigation and within each selected block, 35% of GPs were covered, and in each selected GP, one

village SHG was randomly chosen. In total, 62 SHGs, 62 GP level federations, 4 block level federations, and 3

district level federations were assessed by the research team.

A summary of the findings from the assessment are presented in the table below:

Assessment Areas

SHG GPLF BLF DLF

Sample Size / Denominator

N=62 N=62 (3 are dysfunctional)

N=12 N=3

Formation • AWWs were involved in formation of 64.5% of SHGs

• SHGs have an average of 7 years of operational experience

• On an average there are 12 members in each of the assessed SHGs.

• Around 59% of members in the SHGs are from ST and SC communities.

• LS & AWWs of ICDS were mostly involved in formation of GPLFs

• 4.8% of GPLFs were found to be inactive

• GPLFs Completed an average of 5 years of formation

• Except one, rest GPLFs were not registered

• BLFs were mostly formed during 2003-08 by Block ICDS functionaries

• All the BLFs are registered under Societies Registration Act, 1860

• District Collectors with DSWOs, ADMs, involved in forming DLFs

• The DLFs have representation of members from the BLFs

• All 3 DLFs are registered under Societies Act 1860

Goal & Objectives

• 54.8% reported empowerment of women as the purpose of forming SHGs

• Financial services at 61.5% and Women empowerment at 59.6% came out as main purposes of

• 83.3% of BLFs informed empowerment of women as the main purpose of forming the BLFs followed by

• DLF members lack understanding & clarity on goal & objective of federation;

• The By-laws written in English was not read by


Assessment

Areas SHG GPLF BLF DLF

forming GPLFs economic development said by 58.3%

most members

Logistics & Infrastructures

• Hardly any SHGs have any basic minimum assets.

• None of the SHGs have separate meeting/office space

• None of GPLFs had basic minimum assets e.g. building, chair, tables, etc. for their meetings.

• All the BLFs have office space and 11 BLFs have computer (9 are functional)

• Out of 12, 4 BLFs have someone to operate computer

• None of the DLFs have basic minimum assets

• DLFs operate either in DSWO / CDPO’s office premises

Bank Account • All SHGs have savings account in the bank.

• Majority (93.5%) of bank accounts are opened with joint signatories.

• 50.8% of GPLFs did not have bank account.

• All the BLFs have Bank account with joint signatories (CDPO is a signatory in few BLFs)

• Separate account opened by BLFs for receiving and managing govt. Funds

• 5 out of 12 BLFs have additional bank accounts for different schemes

• All 3 DLFs have savings bank account with joint signatories

Executive Body and Members

• In 80.6% of SHGs, the executive members comprise of President and Secretary

• 59% of SHG members are from ST/ SC communities

• Two third of general and half of executive members are non-literates

• Nearly three fourth of SHG members are BPL card holders

• The EC members were mostly selected;

• 60% of EC members have education of 5th grade or above

• 66% of EC members belong to ST and SC communities

• 61.4% of EC members pursue any occupation;

• 71.2% of EC members are BPL

• 50% of BLFs adopted selection procedure for EC

• EC members are chosen on grounds of leadership, mgt. qualities, comm. skill and mobility

• 66.7% of EC members have education till 5th grade or above

• 64.9% belong to ST and SC

• 72.8% of the total members are BPL

• EC members are articulate and having good grasp of local issues.

• 100% of the Working Committee members in Rayagada and Kandhamal are found to be elected and selected respectively whereas mix approach was adopted in Bolangir DLF;

• All members of Rayagada DLF have completed 7th grade whereas more than 65% members are educated beyond 7th class in other two DLFs.

Services and Activities

• Majorly into thrift and credit services

• SHGs have savings averaging of Rs.32,469

• 69.4% have taken bank loan and 35.5%

• Irregular payment of service charge by GPLFs

• GPLFs face financial constraint due to low income

• Only 23.7% GPLFs

• Irregular payment of monthly service charge by BLFs leading to financial constraints.

• Out of 12, 10 BLFs received financial

• The DLF of Kandhamal and Rayagada were found to be active in various financial and non-financial activities; whereas Bolangir DLF needs substantial


Assessment


received Govt. support

• Other funds generated by SHGs (83.9%) from bank, govt., NGOs, etc.

• 88.7% of SHGs were engaged in internal lending

• Wide range of manufacturing and services that includes agriculture, cottage industry, THR, etc.

mobilize savings and 6.8% provide loan

• None of GPLFs was used as intermediary for transferring of fund to SHGs;

• 20.3% of GPLFs are involved in mobilizing SHGs to conduct rally on addressing alcoholism, malaria, etc.

support from Government

• Balance fund with BLFs ranges from 1,70,000/- to 25,00,000/-

• Organise and conduct skill based trainings to SHGs

support to be more active.

• Bolangir and Rayagada DLF have the total savings of Rs.700 and Rs.10, 475 only; whereas Kandhamal DLF found to have Rs.91, 880 generated both from membership fees and profit from trading of Sugar and Bengal Gram.

Governance & Management Practices

• Decision in majority (87.1%) of SHGs are taken collectively by all members

• None of SHGs maintain all the prescribed registers

• The books/records in about 25% to 65% of SHGs were not updated.

• Meeting of 35.6% of GPLFs was never held.

• In rest of GPLFs the meetings were held irregularly;

• Low attendance of members in meeting, affecting decision making and mgt. of GPLFs;

• Poor or non-maintenance of records / registers by GPLFs.

• Maximum (41.7%) of BLFs hold monthly common meeting of GB & EC

• All BLFs (100%) maintain cash book and by 11 (91.7%) maintain minutes book

• The record keeping is upto standard at BLFs in comparison to GPLFs and SHGs

• Supported by Mission Shakti Supervisors

• The decision in DLF, Kandhamal are taken jointly by all members, for Rayagada the president and secretary decide and for Bolangir it is the District Administration which directs the DLF

• DLF lack control over own financial resource and majorly depend on the mission Shakti coordinator/DSWO

• Discontinuance of reimbursement of transportation cost acts as deterrent for attendance;

• All the DLFs found it very difficult to operate from a shared premises

Engagement & Interest in HNWASH (Top line)

• Distribution of mosquito nets

• Mobilizing women and children to take nutrition supplements from AWC;

• Repairing of community tube wells

• sprinkling bleaching powder in

• Very few GPLFs were involved in HNWASH;

• GPLFs (67.8%) have expressed their interest to take up HNWASH activities in the community

• No direct involvement on HNWASH activity by flagship programmes

• All BLFs have expressed their interest to take-up HNWASH activity.

• Among three districts Rayagada and Kandhamal have some experience in HNWASH activities as against Bolangir DLF which has none.

• All DLFs have expressed their interest to take-up HNWASH


Assessment


surrounding village ponds

• All SHGs have expressed their interest to take-up HNWASH

Training Undertaken and Conducted

• An average of 19.4% SHG members have undergone some skill based trainings

• Very low percentage (6.8%) of federation members underwent some trainings

• Majority (n=11) BLFs members attended various trainings on skill up-gradation, leaf plate stitching, SEFA training, THR preparation etc.;

• Unlike GPLFs and SHGs, at least 50% of BLFs (n=6) have experience of organizing training for SHG members

• Selected members of Kandhamal, Bolangir and Rayagada have undergone only Chhatua preparation and Capacity Building training.

• Members of Rayagada have undergone other training on hand-wash, Nutrition and Health.

• The trained members were used as resource persons for trainings of other SHGs in the District.

Gradation (in % of scores) Gr-A (=>76%) Gr-B (51%-75%) Gr-C (26%-50%) Gr-D (=<25%)

• Grade-A: 9.7% • Grade-B: 46.8% • Grade-C: 43.5% • Grade-D: 0.0%




As shown above, the study found a number of strengths and weaknesses among SHGs and their associated

federations that will need to be factored into the design of community interventions.

At the SHG level, we find that SHGs have been functioning for several years -- on average seven -- they meet

regularly, and have strong linkages with banks and government schemes: attributes which provide a sound basis

on which a PLA cycle can be nested. While the current monthly SHG meeting schedule will need to be

supplemented with separate PLA meetings, given the expressed interest of SHG members to work on HNWASH

issues this seems feasible; though this is an important point to be monitored. In line with the composition of the

local population, Scheduled Tribe and Scheduled Caste members dominate the social make-up of SHGs, their

executive committees, and subsequently the GP, block and district federations; and validate the assumption that

SHGs provide a vehicle to reach disadvantaged households. One of the main operational weaknesses of SHGs is

the poor maintenance of records and registers. This reflects the low literacy skills of members, and the need for

training. Both aspects will need to be factored into the PLA intervention such that PLA materials are tailored to

non-literate populations, and delivery of training and the PLA cycle is paced accordingly.

In contrast to SHGs, GP level federations appear much less developed. All except one is registered, none are

linked with banks or Government schemes, none have systems or experience in handling funds, many do not

meet, and those that do meet, do so irregularly with poor attendance. The findings highlight the fundamental


capacity building needs of GP federations, and suggest that they currently lack the institutional capacity and

maturity to take a lead role in managing community mobilisation interventions targeted for SHG

implementation.

Block level federations are significantly stronger than lower level GP ones. All were found to be registered and

have bank accounts, and considerable experience in managing funds. Regular meetings are held, generally

conducted by CDPO, and records and registers are well maintained. Most Block federations also have access to

infrastructure for meetings, and a functional computer. The majority of block level federation members have

received basic skills training, and provide training to others; and we anticipate that they will provide a pool from

which PLA block coordinators can be drawn. Weaknesses do exist in their functioning, such as the low self-

generated corpus, and the irregular payment of membership fees by GP federations, but overall, block

federations provide a viable platform for supporting the coordination, management, training and supervision of

SHG PLA interventions. Block federations’ experience with managing funds and the practice of maintaining

accounts under a double entry system, leads us to believe that with appropriate training, the support of the

CDPO and technical assistance, and the boundaries of a well-defined funding framework, that they will be

capable of managing funds for the PLA intervention.

All three district level federations studied are registered with bank accounts, and are closely connected to

district authorities. While this encourages liaison and access to Government schemes, it also means that the

focus, operation and management of the federation tends to be driven by the district administration. In fact, the

study found a general weak understanding of the role and objectives of district federations among its members.

The district federations operate from the DSWO, with no separate space or facilities. Monthly meetings tend to

be held but due to the lack of allowances for members to attend, participation from across the district is

variable. In Bolangir and Raygada, trade, business, and skill building activities are not undertaken at district level,

but led by the block federations. District federations are key actors to be involved in district coordination and

oversight of future interventions, and with facilitation and capacity building support appear well positioned

alongside government to play this role. However, sub-optimal linkages between district and block federations,

and the weak capacity building role of district federations reinforces the finding that block federations are the

stronger location for PLA implementation support and training.

District wise, SHGs are stronger in Bolangir than in Kandhamal and Raygada, though this is not so for the

respective GP, block or district federations. As to be expected, variations in institutional capacities in each

district will need to inform local PLA implementation planning. The pace of roll-out will be influenced by the

capacity of SHGs and block federations, and this is to be expected to vary by district. This study used Mission

Shakti information sources to identify functioning SHGs for study purposes. Further local mapping of functioning

SHGs and federations is needed to supplement this database, and inform selection of SHGs for the PLA

intervention.

As the first wave of districts, Bolangir, Kandhamal and Raygada will provide a testing ground for later districts,

and the varied institutional capacities, strengths and weaknesses of the SHGs and federations they contain, will

be helpful in preparing the learning for expansion.

***


CHAPTER - I

1. OVERVIEW & METHODOLOGY OF THE ASSESSMENT

1.1 Community Process (CP) for HNWASH: Specific Context

The technical assistance to the Department of Women and Child Development (DWCD) and the

Department of Health and Family Welfare (DHFW) in Phase I of TMST was very much focused towards

bringing in systemic reforms in the areas of Human Resources, Financial Management, Procurement and

Monitoring to exhibit positive outcomes on maternal and child health.

After 4 years of system strengthening at the State level, it was a logical move to extend the TA support

to address the social determinants of health through empowerment of women and communities. While

designing the strategic plans for phase II, the focus has been to improve HNWASH (Health, Nutrition,

Water and Sanitation as well as Hygiene) status of the community through better access to public

services leading to greater demand generation in 15 High Burden (HB) Districts of Odisha.

The Community Process (CP) package is designed to achieve the above mandate through a variety of

synergistic interventions that builds on to the government programs and initiatives at the community

level. Like many other states, Odisha is having a strong network of women’s Self Help Groups (SHGs)

witnessing more than 4 lakhs SHGs under the umbrella of Mission Shakti. The SHGs of women are

regarded as “the harmonic champion at the community level who works from dawn to dusk”. They are

essentially less bureaucratic, mutual and peer support groups at grass-root level having a specific

purpose for mutual aid in satisfying a common need. One of the key approaches of the CP is to mobilize

these SHGs through Participatory Learning Action (PLA) cycle to reach out to its members as well as

other people living in the community to achieve improved HNWASH practices and outcomes in the

community.

1.2 SHGs & SHG-Federations in CP Focused Districts of Odisha

The SHG movement in Odisha was started in early-nineties. While it was the NGOs who initially drove

the SHG movement in the State, the government took it forward by launching Mission Shakti under the

DWCD in 2001 fostering formation of more and more number of SHGs in the State. As of 2012, there are

4,56,7131 SHGs formed in the State out of which 1,47,975 are in the 15 HB Districts where CP

interventions will be undertaken. At present each of the villages in Odisha including out-reach pockets

have at least one SHG; who have taken up many issues relevant to social or community life, going much

beyond the thrift and credit management function of SHGs.

11Lakh = 100,000, 10Lakh = 1Million


Given the increasing number of SHGs and their need to deal with issues which are beyond their reach;

networking of SHGs was stimulated by Mission Shakti during 2003 though it was conceptualized in 2001.

Mission Shakti took initiative to give them an institutional form by promoting Gram Panchayat Level

Federations (GPLFs), Block Level Federations (BLFs) and District Level Federations (DLFs) for the growth

and sustainability of SHGs or members of SHGs in the state. The primary function of these federations

were envisaged as promoting community owned and controlled institutions for self-reliance besides

addressing societal

issues that impinge

on their members.

Operation manual for

SHG Federation in

Odisha suggested for

four tier federation

structure as shown in

the diagram.

Tier-I, Village Level:

The SHGs formed in

the village are

independent in all

respect.

Tier-II, Gram Panchayat Level Federation (GPLF): All the qualified SHGs are federated at the GP level to

form the GPLF. It will constitute of two representatives from each SHG.

Tier-III, Block Level Federation (BLF): All the GPLF are federated at the Block level to form the BLF. It will

constitute of two representatives from each GPLF. The BLF will have its own legal entity.

Tier-IV, District Level Federation (DLF): All the BLF are federated at the Block level to form the DLF. It

will constitute of two representatives from each BLF. The DLF will have its own legal entity.

As per the Operation manual for SHG Federation in Odisha, the roles and responsibilities envisaged for

each level of federations are annexed.

1.3 Need & Purpose of the Assessment

The role out plan for SHG PLA cycle in CP aims to leverage the strengths of SHG federations for reaching

out to the large number of potential SHGs formed in the community. As per the implementation

structure, the SHG PLA will be led by DWCD in collaboration with DHFW and Rural Development (RD) in

partnership with Mission Shakti supported by TMST at the State level. Similarly for implementation

DLF

BLF BLF BLF

GPLF GPLF GPLF GPLF GPLF

SHG SHG SHG SHG SHG SHG SHG

Tier-IV District

Tier-III Block

Tier-II Panchayat

Tier-I Village

SHG Federation Structure


across 15 HB Districts, Mission Shakti’s DLF; TMST’s District TA and a District NGO will provide

coordination, training, supervision and quality assurance related inputs at the District level. At the block

level, a resource pool will be created consisting of four Block Coordinators cum Master Trainers (2 from

NGO, 1 representative from BLF and 1 ICDS Supervisor) to coordinate, train, supervise and ensure

quality implementation. Finally at the Gram Panchayat (GP) level, 2 GP Facilitators will be trained and

engaged preferably from the GPLF to execute the PLA cycle with the SHGs in the community.

As per the implementation structure the SHG federations will act as an intermediary facilitator to

provide technical support and manage financial assistance required for rolling out the SHG PLA cycle.

Hence it is imperative to know two central and fundamental aspects of Federations of the SHGs at

various levels namely:

i) Whether SHG federations exist and function at GP, Block and District levels; and

ii) To understand their capacity for playing the envisaged role under CP.

An assessment was therefore undertaken to gather relevant information about federations to inform

planning and implementation of the SHG PLA cycle and CP more broadly.

1.4 Objectives

Hence the assessment aims to assess the capabilities of SHGs and their Federation at various levels to

determine whether and to what extent SHGs can be engaged in the CP process with the following

specific objectives:

i) Assess the goal, purpose, process and status of functioning of SHG federations at GP, Block and

District level along with its organizational mandate and structure;

ii) Understand the willingness of SHG federations to fit into the purpose of taking forward the

HNWASH mandate of CP;

iii) Assess SHG’s and SHG-Federation’s organizing capacity, financial strength and capability of

managing funds for rolling out the SHG PLA cycle

iv) Assess the knowledge and capacity of SHG federations to facilitate and provide technical and

training support for rolling out the SHG PLA cycle on HNWASH

v) Understand how SHGs perceive the functioning and support provided by the SHG federations at

GP, Block and District level; and

vi) Recommend capacity building needs for effective engagement of SHG federations and

usefulness of creating a resource centre at district and block level in implementing PLA cycle

with SHGs.


1.5 Scope of Work

1.5.1 Geographic Scope of Work

The CP will be implemented initially in the three Districts namely Rayagada, Kandhamal and Bolangir

having highest under-five mortality in the State as per Annual Health Survey, 2010-11. Hence the

assessment of SHG federations was limited to these 3 CP start-up Districts only.

1.5.2 Thematic Scope of Work

i) Understand goals, objectives and governance system of the federations and whether HNWASH

is there in the mandate of federations. Understand the key achievements made by the

federations on HNWASH and gauge their interest in taking up SHG PLA cycle;

ii) Find out the functional status of SHG federations (years of operation) and know whether they

have been registered under any act (legal identity) through verification of by-laws, minutes

book, etc.;

iii) Collect details about the management structure and tenure of the executive and general body

of the Federations and its formation process including personal profile and socio-demographic

information about the members.

iv) Collect information on human resources engaged by the federations (temporary or permanent)

for fund management/accounting or other activities and the process involved in recruitment,

payment and monitoring etc.;

v) Find out details of financial services and / or related intermediary roles managed by the

Federation. Collect information on savings, credit, insurance and any financial services provided

by the federation;

vi) Collect the account details of the federation along with financial transactions undertaken over

the last one year. Find out about various records (both financial and non-financial) maintained

by them. Know the regularity and clarity on records maintenance;

vii) Find out various non-financial initiatives / engagements (social development initiatives) of the

federations;

viii) Collect information on meetings, such as its frequency, agenda, attendance, resolution passed,

decisions taken etc.

ix) Assess the knowledge of SHG federations on expected HNWASH behaviour and practices. Assess

the coordination, facilitation and leadership skill of the federations in the context of

implementing SHG PLA cycle.

x) Collect details of training undertaken by the federation members. Assess the experience of the

federations in conducting and managing training and awareness generation programs as a lead

agency and their skill in monitoring and supervising the SHG activities at a micro level.

xi) Assess the financial viability of Federations and understand their capability to manage funds.


xii) Collect information on availability of logistic and infrastructures facilities with SHG federations

such as own office, computer, Almirah etc. and other related support system;

xiii) Cover sample SHGs for assessment and elicit feedback on the functioning and support provided

by the SHG federations.

xiv) Assess the strengths and weaknesses of federations and scope of improvement in related areas.

Recommend their capacity building needs for taking up SHG PLA cycle on HNWASH.

xv) Prepare a brief status report and grading of each SHG federation on key assessment parameters

including receipt of recognition or award by the federation.

1.6 Methodology

1.6.1 Design of the Assessment

An exploratory research design was adopted for undertaking the assessment. This design was helpful to

explore and understand the process of functioning, management, capacity, strengths and weaknesses of

SHGs and SHG-Federations operating in the district.

1.6.2 Data Collection

The assessment was carried out using mixed method approach i.e. quantitative and qualitative research

techniques combined for collection of data. In line with the objectives and scope of works of the study,

data from both primary and secondary sources were collected, analyzed and presented in the report.

1.6.2.1 Primary Data Collection

The assessment team interacted directly with the SHGs and SHG-Federations for collection of primary

data.

1.6.2.1.1 Sampling Frame and Design

Multi-stage sampling design was applied for identifying the sample areas for assessment. The details of

the sampling frame and design used are presented hereunder:

Selection of Districts: The assessment was carried out in all three CP start-up districts (viz. Bolangir,

Kandhamal and Rayagada) for assessment of the District Level SHG Federation (DLF).Thus, no

sampling was needed for selection of districts.

Selection of Blocks: The sample Blocks were randomly identified from different geographic locations

in the district for assessment of the Block Level SHG Federation (BLF).

Selection of Gram Panchayats (GPs): The selection of GPs was done using systematic random

sampling design for assessment of the Gram Panchayat Level SHG Federation (GPLF).


Selection of Villages: In each selected GP, one village was randomly chosen for the assessment of

any one SHG functioning in that village.

1.6.2.1.2 Sample Size

In each of the 3 selected districts, at least 30% of Blocks were covered (which comes to a total of 4

Blocks per district approximately) under the assessment. Then in each selected Block, 35% of GPs were

covered which includes the coverage of an extra 5% GPs for non-response rate. Further in each selected

GP, one village was randomly chosen for the assessment.

District wise the sample size proposed vs. covered in the assessment is presented in the table below:

Table 1: Sample size for SHG assessment study in the three districts of Odisha

Sample

Category

Bolangir Kandhamal Rayagada Total

Proposed Covered Proposed Covered Proposed Covered Proposed Covered

District 1 1 1 1 1 1 3 3

Block 4 4 4 4 4 4 12 12

GP 26 26 17 17 19 19 62 62

Village 26 26 17 17 19 19 62 62

1.6.2.1.3 Tools & Techniques of Data Collection

Table 2: Tools & Techniques of Data Collection

Respondents Techniques of Data Collection Tools for Data Collection

Members of SHGs and

SHG Federations at GP,

Block and District levels

i) One to One Interview i) Structured Interview Schedule

ii) Focused Group Discussion/

Meeting with key members

ii) Checklist for FGD

iii) Observation of records and

documents

iii) Observation checklist

1.6.2.2 Secondary Data Collection

Secondary data were collected for mapping of SHGs and SHG-Federations existing in the three study

districts. Since the mapping exercise requiring more time, this report excludes the analysis of same

which will be done separately after the mapping is complete. The secondary data collected for the

assessment are as below:

Village wise list of SHGs and status of their functioning;

List of Gram Panchayat Level SHG Federations (GPLF) and status of their functioning;

List of Block Level SHG Federations (BLF) and status of their functioning; and

Copy of the bylaws of the registered SHG Federations


1.6.2.3 Data Entry, Analysis and Reporting

The assessment used both quantitative and qualitative data analysis methods. The quantitative data was

cleaned, entered and analyzed using software packages like SPSS and Excel. Data tables were prepared

and presented in the report with frequencies,

percentages and averages. The open ended

responses collected during interviews and FGDs

were also compiled and presented in the form of

qualitative table / matrix in the report.

1.7 Limitations

i) The assessment of SHGs and SHG-Federations was made based on the interaction and

discussions with their members (mostly executive members) only. Due to paucity of time, the

assessment did not make an attempt to elicit feedback of other stakeholders associated with

the SHGs and SHG-Federations.

ii) Looking at the objectives and purpose, the assessment focused on understanding the capacity of

SHGs and SHG-Federations for taking-up PLA intervention on HNWASH. Lesser focus was given

to assess the core activities / services of SHGs and SHG-Federations e.g. savings, credit,

insurance, income generation, etc.

iii) The assessment used secondary data (collected from ICDS functionaries) to plot SHGs and SHG-

Federations in the districts. Only sample Villages, GPs and Blocks were visited to gauge the

status of functioning of SHGs and SHG-Federations.

***

Preparation of data entry structure

Data Entry

Error Detection in Data Entry

Data Validation & Traingulation

Data Analysis

using SPSS

Generation of Data Tables (single and

multi-variate tables)


CHAPTER - II

2. SELF HELP GROUPS (SHGs): FINDINGS OF THE

ASSESSMENT

The assessment covered a total of 62 sampled SHGs from the three identified districts of Odisha. Highest

i.e. 26 (41.9%) were covered in Bolangir followed by 19 (30.6%) in Rayagada and 17 (27.4%) in

Kandhamal district. It is important to note that only functional SHGs were covered for the purpose of

assessment. The findings of the assessment of these 62 SHGs are structured and presented under

different sections of this chapter.

2.1 Formation & Year of Operation of SHGs

Historically, the SHG movement in Odisha was started by NGOs during early nineties. In 2001, the

Government of Odisha launched Mission Shakti under the aegis of Department of Women and Child

Development (DWCD) to expedite the SHG movement in the State. Mission Shakti with the support from

ICDS scaled-up the formation of SHGs across the State. In particular, the AWWs under the guidance of

Sector Supervisors and Child Development Project Officers (CDPOs) of ICDS; and Mission Shakti

Coordinator mainly spearheaded the formation and promotion of SHGs in the community.

The findings of the assessment also show that the AWWs were

involved in formation of maximum i.e. 64.5% of SHGs (n=40).

Next highest i.e. 21% of SHGs (n=13) were formed with the

support from NGOs followed by 19.4% (n=12) were formed by

the members themselves. Mission Shakti functionaries were

involved in formation of remaining 14.5% of SHGs only (n=9).

District wise, as high as 80.8% (n=21) and 70.6% (n=12) of SHGs in Bolangir and Kandhamal respectively

were formed by the AWWs as compared to 36.8% (n=7)

in Rayagada district. Unlike Bolangir (3.8%, n=1) and

Kandhamal (23.5%, n=4) districts, the NGOs played a

key role in forming the SHGs in Rayagada district

(42.1%, n=8).

Highest i.e. 43.5% of SHGs (n=27) covered in the assessment has been operating since last 5 to 10 years

followed by 30.6% (n=19) for less than 5 years and rest 25.8% (n=16) has been operating for more than

10 years. None of the SHGs is less than 1 year old. In brief, the SHGs covered in the assessment have

substantial years (an average of 7 years) of experience in operation and management of groups.

AWWs were involved in

formation of maximum

i.e. 64.5% of SHGs.

SHGs have considerable years (an

average of 7 years) of experience

in managing groups.


2.2 Purpose of Forming SHGs

Undertaking savings and credit activities was reported by

majority i.e. 87.1% of SHGs (n=54) as the purpose behind

forming the SHGs. Next highest i.e. 69.4% (n=43) reported

economic development and around half i.e. 54.8% (n=34)

reported empowerment of women as the reasons behind

forming the SHGs.

2.3 Logistics & Infrastructures with SHGs

None of the SHGs covered in Bolangir and

Rayagada districts owns any assets. In

Kandhamal, only one SHG each owns house

and table; two SHGs own chairs; and 3 SHGs

own assets for business / income generation. It

is evident that most of the SHGs do not have

any infrastructural / logistical facilities for their

operation. Noteworthy is in spite of not having

any infrastructural and logistical support the SHGs are functioning for years.

2.4 Bank Account of SHGs

All the SHGs (n=62) have opened their savings account in the bank. The accounts are opened either in

the Regional Rural Banks (RRBs) or in the Nationalized Banks (namely State Bank of India, Indian

Overseas Bank, UCO Bank, Allahabad Bank and Andhra Bank). None of the SHGs has more than one

savings bank account, which is as prescribed by NABARD for opening of the bank account by SHGs.

Only half i.e. 54.8% of members

reported empowerment of

women as the purpose of

forming SHGs.

Without any infrastructural

and logistical support the

SHGs are functional for

years.

WomenEmpowerment

EconomicDevelopment

Social Development Financial Services Business/IncomeGeneration

53.8%

73.1%

11.5%

96.2%

30.8%

52.9% 58.8%

35.3%

70.6%

58.8% 57.9%

73.7%

26.3%

89.5%

42.1%

Chart 1: Purpose of formation of SHGs (in %) Bolangir

Kandhamal

Rayagada


The bank accounts of majority i.e. 93.5% of SHGs

(n=58) are opened with joint signatories of

President, Secretary and Treasurer or any two of

them. The account of remaining 6.5% of SHGs

(n=4) are opened with one signatory only.

Although the number of such SHGs is small,

having one bank signatory is not a secured

practice adopted by these SHGs.

2.5 Membership Details of SHGs

Group Size: The SHGs covered in the study have

a total of 756 members which comes to an average of 12 members per group. The number of members

in the SHGs ranges from a minimum of 7 to maximum of 20 members. Out of the total members, 136

are selected as executive members in the SHGs viz.

President, Secretary and Treasurer.

Executive Members: In most of the SHGs (80.6%, n=50),

the executive members comprise of President and

Secretary. The remaining 19.4% of SHGs (n=12) has an

additional executive member i.e. Treasurer.

Caste Composition: The Scheduled Tribes (STs) (n=239,

31.6%) and Scheduled Castes (SCs) (27%, n=204) constitute

more than half (n=443) of the total members in the SHGs

(N=756). It is important to note that the study districts are

predominantly inhabited by STs and SCs which could be the

reason for finding more percentage of SHG members are

from the same caste groups. The Other Backward Castes

(OBCs) constitute 35.7% of members (n=270) and General Castes constitute 5.7% of members only

(n=43).

The assessment also reveals that exactly half of the SHGs (50%, n=31) are caste wise homogenous which

constitutes 19.4% of ST (n=12), 17.7% of SC (n=11) and 12.9% of

OBC (n=8) groups. The rest 50% (n=31) are heterogeneous

groups. A homogeneous group tends to be cohesive, relates

better with each other, and has similar needs and coping

behaviour2.

Age Group: Maximum i.e. 44.3% of SHG members (n=335) were

in the age group of 31 to 45 years followed by 30.7% (n=232)

2 SADHAN Technical Note, http://www.sa-dhan.net/Adls/Microfinance/Article/Publications/SHGPerformanceMeasurementTool.pdf

Around 59% of members

in the SHGs are from ST

and SC communities.

Surveyed SHGs have good

(50%) representation

form heterogeneous

groups (caste wise).

On an average there are 12

members in each of the

assessed SHGs.


were in 46 to 60 years and 19.6% (n=148) are in the age

group of 18 to 30 years. Only 5.2% (n=39) were above

60 years and 0.3% (n=2) was below 18 years of age.

The assessment also reveals that half of the executive

members (51.5%, n=70) were in the age group of 31 to 45 years followed by 28.7% (n=39) were within

46 to 60 years of age.

Education: More than two third i.e. 68.5% of

SHG members (n=518) are non-literates. The

percentages of non-literate SHG members

were found to be more in Rayagada (82.7%,

n=191) as compared to Bolangir (58.4%,

n=191) and Kandhamal (68.7%, n=136)

districts. Only 22.2% of SHG members

(n=168) completed education up to 5thor

above standard and 4% (n=30) completed 10th or above

standard.

Interestingly, more than half i.e. 52.9% of the executive

members (n=72) are non-literates. Nonetheless, the

executive members have better educational standard as

compared to general SHG members (33.1% completed

education up to 5th or above, n=45 and 7.4% completed

10th or above standard, n=10).

The educational status of members also shows that 17.7% of SHGs (n=11) have only non-literate

members. But at least one member in rest of the SHGs has education up to 5th or above standard.

Occupations: 71.6% of SHG members (n=541) pursue different an occupation to earn livelihood for their

families. The remaining 28.4% of SHG members (n=215) were dependent on other family members for

managing their livelihood. Occupations such as agriculture (36.2%, n=274) and wage earning (29.8%,

n=225) were pursued by maximum of group members.

Poverty Level: Nearly three fourth i.e. 73.1% of SHG members (n=553) are BPL card holders. Out of the

total SHGs covered in the study, 35.5% of SHGs (n=22) have exclusively BPL members and 1.6% has APL

members (n=1) only. The remaining 62.9% of SHGs (n=39) have both BPL and APL members.

Maximum of SHG members are in

the age group of 31 to 45 years.

Two third of general members

and half of executive members

are non-literate.

71.6% of SHG members

pursue any occupation.

Nearly three fourth of SHG

members are BPL card

holders


2.6 Services and Activities of SHGs

Engagement in Savings and Credit: All the SHGs (100%, n=62) are engaged in mobilizing monthly savings

from their members. The savings amount

collected from the members varies from SHG

to SHG and ranges from a minimum of Rs.10/-

p.m. to a maximum of Rs.100/- p.m. collected

by SHGs from its members. Till the time of data

collection, an average of Rs.32,469/- was

mobilized as savings by the SHGs. Minimum

and maximum amount of savings generated by

an SHG was Rs.3,663/- and Rs.82,000/-

respectively. The assessment findings also show that maximum i.e. 41.9% of SHGs (n=26) had savings

amount below Rs.25,000/- followed by 35.5% (n=22) had Rs.25,001/- to Rs.50,000/- and 17.7% (n=11)

had Rs.50,001/- to Rs.75,000/-. Only 4.8% of SHGs (n=3) generated savings more than Rs.75,001/-.

Table 3: Amount of savings generated by SHG

District Count Mean Median Minimum Maximum

Bolangir 26 33,165 31,408 3,663 81,879

Kandhamal 17 23,020 20,000 6,000 48,000

Rayagada 19 39,971 37,000 5,000 82,000

Total 62 32,469 30,250 3,663 82,000

In addition to savings, SHGs also generated funds from other sources like Bank, Government, NGOs, etc.

At the time of assessment, 69.4% of SHGs (n=43) availed loan from Bank and 35.5% (n=20) received

financial support under different schemes of

Government. Of late, SHGs in selected Blocks

were graded by ICDS; and based on which

SHGs were identified and given Rs.50,000/-

as revolving fund from Mahila Vikash

Samabaya Nigam (MVSN). Selected SHGs

were also given financial support under

schemes like SGSY, Swayam Sidhha, etc. A

total of 83.9% of SHGs (n=52) could generate funds from other sources like bank, government, NGOs,

etc. The average amount of other funds generated by an SHG (excluding the savings of members) works

out to be Rs.130,290/- with a minimum of Rs.1,240/- to a maximum of Rs.525,000/-.

The SHGs in turn on lend the funds to it members for both production and consumption purposes with

rate of interest varying from 24% to 36% charged to members. Out of the total SHGs, 88.7% (n=55) were

found to be engaged in internal lending. At the time of assessment, members in 50% of SHGs (n=31) had

SHGs have an average savings of

Rs.32,469/-.

69.4% SHGs have taken bank loan

and 35.5% received Govt. support.

83.9% of SHGs generated funds

(Rs.130,290/- per SHG) from

Bank, Government, NGOs, etc.

other than their savings.

88.7% of SHGs were engaged

in internal lending.


loan outstanding which works out to be an average of Rs.97,916/- per SHG with a minimum of

Rs.10,000/- to a maximum of Rs.290,000/-approximately.

Engagement in Other Development Activities: Maximum i.e. 56.5% of SHGs (n=35) was engaged in

income generation activities. Other key activities undertaken by SHGs include clean drinking water

(53.2%, n=33), sanitation (50%, n=31) and

health (50%, n=31). Greater percentages of

SHGs were also engaged in addressing

domestic violence (41.9%), conflict resolution

of members (40.3%, n=26) and addressing

social issues like alcoholism, child labour, etc.

(35.5%, n=22). Only 38.7% of SHGs (n=24)

were involved in providing support to ICDS on delivery of nutrition services and 22.6% (n=14) were

engaged in mid-day meal program run by the Government for primary school children.

Table 4: Percentage of SHGs Engaged in Other Development Activities

Activities Bolangir Kandhamal Rayagada Total

Training/Capacity Building 34.6 11.8 0.0 17.7 Health promotion 65.4 35.3 42.1 50.0 Income generation 61.5 35.3 68.4 56.5 Nutrition / ICDS 42.3 35.3 36.8 38.7 Public Distribution System 3.8 11.8 5.3 6.5 Drinking Water 50.0 35.3 63.2 50.0 Marketing 30.8 17.6 21.1 24.2 Sanitation 50.0 64.7 47.4 53.2 Addressing Domestic Violence 53.8 23.5 42.1 41.9 Education 34.6 5.9 42.1 29.0 Conflict resolution & problem

solving 46.2 29.4 42.1 40.3

Mid-day Meal 30.8 11.8 21.1 22.6 Other Social issues (alcoholism,

child labour, gender sensitization) 34.6 23.5 47.4 35.5

Other Activities 7.7 0.0 5.3 4.8

District wise analysis shows, higher percentages of SHGs (65.4%, n=17) in Bolangir were engaged in

health activities. On the contrary, more SHGs in Kandhamal (64.7%, n=11) and Rayagada (63.2%, n=12)

districts were involved in activities relating to sanitation and clean drinking water respectively.

About 50% of SHGs was engaged in

health, sanitation and drinking water and

less than 40% engaged in nutrition.


2.7 Engagement & Interest of SHGs in HNWASH

Specific activities undertaken by SHGs in relation to HNWASH are as below:

The assessment findings also reveal that while only half of the SHGs have been involved in HNWASH, all

of them (100%, n=62) have expressed their interest for taking up the same in the community.

2.8 Governance & Management Practices of SHGs

Group Norms: The group norms in SHGs are mostly set around membership, meeting, savings, credit,

etc. Although all the SHGs have set group

norms, 66.1% of SHGs (n=41) have

explicitly written down the same in their

minutes / resolution books.

Clarity of members on Group Norms and

Objectives: During the course of FGD

with SHGs, most of the members were

found to be unaware of the objectives

and norms of their group. There are only

33.9% (n=21) of SHGs where majority of

the group members (>80%) have clarity

on the goal & objectives of their group. Similarly only 30.6% (n=19) of SHGs are there where most

(>80%) of the members have clarity on the norms & guidelines set by their SHGs.

Group Meeting: Majority i.e. 82.3% of SHGs (n=51) meet on monthly basis. The remaining 16.7% of

SHGs meet on weekly / fortnightly / quarterly basis. More importantly, around two third of SHGs (69.4%,

n=43) meet regularly. Further to mention that there are at least three fourth of SHGs (75.8%, n=47)

where more than 81% of members attended the last group meeting held prior to the day of assessment.

6.5%

6.5%

82.3%

1.6% 3.2%

Chart # Frequency of SHG meetings conducted (in %)

Weekly

Fortnightly

Monthly

Quarterly

Not Met at All

Health (n=31)

•Distribution of mosquito nets;

•Awareness generation on malaria and diarrhea;

•Hospitalization of emergency patients; and

•Mobilization of pregnant and lactating women for VHND

Nutrition (n=24)

•Mobilizing women and children to take nutrition supplements from the AWC;

•Assisting in distribution of THR at AWC; and

•Observing breast feeding week

Drinking Water (n=31)

•Repairing of community tube wells; and

•Creating awareness for using clean drinking water

Sanitation & Hygeine (n=33)

•Cleaning of village road, pond and tube well;

•Motivating people for construction & use of toilets; and

•Applying of bleaching powder on the surrounding of village ponds


The topic discussed in the last meeting of most of the SHGs (89.3%,

n=50) is on savings and credit followed by 32.1% (n=18) on

business/income generation. Discussion on community development

issues like clean drinking water, weighing of children, cleaning of

village road, plantation, etc. were held in only 5% to 10%of SHGs.

Management and Decision Making: In maximum of cases (41.9%, n=26), the day to day functioning of

SHGs was managed by all the group members together whereas in 30.6% of SHGs (n=19) the President

and Secretary jointly manages the group

activities. The assessment findings also show

that the decision in majority i.e. 87.1% of

SHGs (n=54) was taken by all the group

members together.

Book Keeping and Documentation: Book

keepings prescribed for an SHG include i)

Minutes Book, ii) Resolution Book, iii) Savings

Register, iv) Loan Register and v) Cash Book.

However, the assessment did not find a

single SHG who was maintaining all the books

mentioned here.

Out of the total SHGs, highest i.e. 85.5% of SHGs (n=53) maintain resolution book followed by 53.2%

(n=33) maintain minutes book. Most of the SHGs covered in the assessment have common minutes and

resolution book. While all the 62 SHGs were engaged in savings activities, only 48.4% (n=30) maintain

the savings register. Loan and cash book was maintained by 37.1% (n=23) and 43.5% (n=27) of SHGs

respectively. Interestingly, 6.5% of SHGs (n=4) did not have any record or register with them at all. This

is important to note here that during the course of data collection some of the SHGs could not show the

books to the assessment team. Further out of those SHGs maintaining the books / registers, the books

were found to be not updated in about 25% to 65% of SHGs. Low education and lack of knowledge &

skill could be the main reason behind improper or non-maintenance of prescribed books by the SHGs.

2.9 Training Undergone and Conducted by SHGs

In majority of SHGs (80.6% n=50), the members did not undergo any training. Member wise analysis

shows that only 11.9% of groups members (n=90) attended any training (e.g. stitching of Khali plates,

preparation of THR-Chattua, Incense stick & candles making, plantation, etc.). The assessment also

found that none of the SHGs had prior experience of organizing any training program.

Decision in majority i.e. 87.1% of

SHGs was taken by all the group

members together.

None of the SHGs maintain all the

prescribed registers.

The books in about 25% to 65% of

SHGs were not updated.

Only 19.4% of SHG

members underwent

any training.


2.10 Gradation of SHGs

The gradation of SHGs was done around three key indicators like formation & membership; services and

activities; and management & governance of SHGs. Based on the scores, each SHG is categorised in four

grades (viz. Grade-A (76% or above), Grade B (51% to 75%), Grade C (26% to 50%) and Grade D (25% or

Below). As per the same, only 9.7% of SHGs (n=6) obtained ‘Grade – A’ with marks scored above 75%.

Maximum i.e. 46.8% of SHGs (n=29) come under ‘Grade – B’ with marks scored within 51% to 75%

followed by 43.5% (n=27) obtained ‘Grade – C’ with marks scored within 26% to 50%. None of the SHGs

secured ‘Grade – D’ which could be due to purposeful coverage of only functional SHGs. District wise,

most of the SHGs in Rayagada obtained ‘Grade – C’ as compared to Bolangir and Kandhamal. Overall,

the SHGs in Bolangir secured better grade as compared to Kandhamal and Rayagada. Particularly in

certain Blocks of Kandhamal district, the functioning and participation of members in SHG activities

were greatly affected after the riot in 2008.

Table 5: Gradation of SHGs

Grade Bolangir Kandhamal Rayagada Total

n % N % n % N %

Grade A (76% or above) 5 19.2% 0 0.0% 1 5.3% 6 9.7%

Grade B (51% to 75%) 17 65.4% 9 52.9% 3 15.8% 29 46.8%

Grade C (26% to 50%) 4 15.4% 8 47.1% 15 78.9% 27 43.5%

Grade D (25% or Below) 0 0.0% 0 0.0% 0 0.0% 0 0.0%

Total 26 100.0% 17 100.0% 19 100.0% 62 100.0%

Further analysis on gradation of SHGs indicate that the groups have scored more marks on governance

and management practices such as regularity & frequency of meeting, attendance in the meeting,

decision making, etc. as compared to group membership and services & activities.

2.11 Problems/Constraints Faced by SHGs

The key problems/constraints faced by the SHGs are as follows:

i) Inability to maintain books/registers

ii) Lack of logistics & infrastructural facilities

iii) Lack of financial and technical support to take-up income generation and market linkage

iv) Inability to organize community for social development activities

2.12 Future Priorities and Expectations of SHGs

The first priority of SHGs is to do income generation activity followed by linkage with bank or

government schemes. Social or community development is ranked as the second most priority of the

SHGs. The key expectations of the SHGs are to get training, financial support, linkage with market and

support for book keeping.

***


CHAPTER - III

3. GRAM PANCHAYAT LEVEL FEDERATIONS (GPLFs):

FINDINGS OF THE ASSESSMENT

A sample size of 62 Gram Panchayat Level - Federations (GPLFs) was assessed from within three chosen

Districts with coverage of 26 (41.9%) from Bolangir, 17(27.4%) from Kandhamal and 19 (30.6%) from

Rayagada Districts.

3.1 Formation & Year of Operation of GPLFs

The GPLFs were formed in all the 62 GPs visited by the assessment team. Most of them were formed

during the period 2005 to 2009. On an average, the GPLFs had completed at least 5yrs of formation

which varies from a minimum of 5months to maximum of 8years. Two executive members (viz.

President and Secretary) from each SHG in the GP represented at GPLF. This procedure was adopted

across all the study Blocks for

formation of GPLFs.

More importantly, while GPLF was

formed in all the 62 GPs, 59 (95.2%)

of them were found to be

functional. Two GPLFs in Kashipur

Block of Rayagada district and one

GPLF in Belapara Block of Bolangir

district were found to be

completely dysfunctional or

inactive. The SHGs and Mission

Shakti Coordinator had no information about the executive members and the month & year of

formation of these 3 GPLFs.

As per the information gathered, the GPLFs were mostly

formed by the ICDS functionaries like Sector Supervisor and

AWWs (84.7%); and the Mission Shakti Coordinator (42.4%). At

each Panchayat, the Sector Supervisor and Mission Shakti

Coordinator (at Block level) with the support of AWWs

organized a common meeting of the President and Secretary of

all SHGs and formed the GPLFs. In none of the cases, the GPLFs

were formed by the self initiative of SHGs.

ICDS functionaries like

Sector Supervisors & AWWs

were mostly involved in

formation of GPLFs.

GPLFs were formed in all the GPs visited by

the assessment team.

4.8% of GPLFs (n=3) were found to be

completely inactive.

The GPLFs had completed an average of 5

years of formation.


Unlike the SHGs, the NGOs were hardly involved (only one each in Bolangir and Rayagada) in formation

of GPLFs. Only the Kurli GPLF in Bissam Cuttack Block of Rayagada and the Kusumendi GPLF in Chakapad

Block of Kandhamal were formed by the NGOs namely RCDC and CHARM respectively. These two GPLFs

were formed prior to the initiative taken up by ICDS.

Except the one GPLF formed by the NGO in Rayagada, none

of them was registered or had any legal identity.

It was also found that due to lack of support and guidance, most of the GPLFs were almost non-

operational across the three study districts. But, since last 5 to 6 months, the ICDS & Mission Shakti have

made concerted effort to revive the GPLFs. In many of the GPs, the GPLFs had to be reformed or

reconstituted. As informed in Kandhamal, the functioning of GPLFs was highly affected due to riot in

2008. Most of the GPLFs were almost dismantled in Kandhamal district after the riot. Now, on the

instruction of District Collector, the ICDS & Mission Shakti have been involved in reconstitution of GPLFs

in Kandhamal district.

Some of the reconstituted GPLFs have lost their earlier records / registers. During the FGDs, some of the

GPLFs particularly in Bolangir (n=4) and Rayagada (n=1) could not even tell the month and year of

formation of GPLFs.

3.2 Purpose of Forming GPLFs

Out of the 59 GPLFs functioning, 7 (11.9%) could not tell the purpose of forming the GPLFs. Of the

remaining 52, provision of financial services at 61.5%

(n=32) came out very strongly as the main purpose of

forming the federation followed by women

empowerment at 59.6% (n=31). District wise,

majority i.e. 90.6% (n=18) in Bolangir informed

provision of financial services, whereas, highest i.e.

75% (n=12) in Rayagada and 68.8% (n=11) in

Kandhamal informed women empowerment and

economic development as their main purposes of

forming the GPLFs respectively.

The message came out very clearly that the members of the federations are interested for recognition

and greater economic benefits through their association with the federation.

“We were not been able to know / speak about

our needs before. Because of the federation we

could understand and speak out our

requirements, even communicate with you

now.” Babita Mukhi, Member”

Ma Dharitri Mahila Mahasangha”, Jajeshpanga

Gram Panchayat, Phringia Block, Kandhamal

District.

None of GPLFs was registered

except the one formed by the

NGO in Rayagada.


3.3 Logistics & Infrastructures with GPLFs

None of the GPLFs were found to have own building and other

assets required for managing their operation. However, it was

observed that most i.e. 84.7% of GPLFs (n=50) do have access to

basic minimum infrastructures like chairs, tables, meeting place,

etc. as they operate from the Government building (e.g. Panchayat House). But during the FGDs, the

members raised the issue of not having any fixed place/assets for their meetings leading to various

functional issues.

None of the GPLFs had also access to computer, though member in only 5.1% (n=3) of GPLFs have skill to

operate the computer.

3.4 Bank Account of GPLFs

Around half of the federations i.e. 50.8% (n=30) have not opened

their bank account for which they had to keep cash in hand. Among the three study districts, the GPLFs

in Kandhamal stands highest at 70.6% (n=12), Rayagada the lowest at 5.3% (n=1) and Bolangir at 33.3%

(n=8) have bank account. All the bank accounts are opened having joint signatories from the office

bearers of GPLFs.

3.5 Executive Committee (EC) of GPLFs

Constitution of EC: Except one in

Rayagada (Ichhapur GPLF in Muniguda

Block), the rest 58 (98.3%) GPLFs have

constituted their Executive Committee

(EC). All the 58 GPLFs have appointed a

President and a Secretary in their EC. In

addition to them, 44.8% of GPLFs

(n=26) have appointed a Treasurer,

20.7% (n=12) appointed a Vice

President and 13.8% (n=8) appointed a

Joint Secretary in the EC. The 58 GPLFs

have a total of 215 members in the EC.

Process of appointment of EC members: The members of EC were elected in only 17.2% of GPLFs

(n=10). More than half i.e. 53.4% of GPLFs (n=31) followed selection procedure for appointing the EC

members. Remaining 29.3% of GPLFs (n=17) do not know how their EC members were appointed. Better

management quality (41.4%, n=24) and communication skill (37.9%, n=22) were considered for

84.7% of GPLFs (n=50)

operate from the

Government buildings

50.8% of GPLFs did not

have bank account.

All the GPLFs have President and

Secretary in their EC.

Half of the GPLFs followed selection

procedure for appointing EC members.

The EC members in most of GPLFs are

continuing since the time of formation.


appointment of EC members in maximum of GPLFs. Education as a criteria was considered in only 17.2%

of GPLFs (n=10). Interestingly, in some of the GPLFs,

the members without having any education were

appointed as EC member. They were mostly

appointed on the grounds of their management &

communication skills. Some GPLFs adopted caste

based quota system for appointment of EC

members.

Duration of EC: Almost all the members in the EC

are continuing since the constitution of the same

except those were reformed or reconstituted.

Although the GPLFs have the norm of appointing

the new EC in every two to three years, it was not

practiced.

Age of EC members: Maximum i.e. 58.1% of EC members (n=125) were in the age group of 31 to 45

years.

Education of EC: Out of the total EC members, 60% (n=129) have education of 5th or above standard.

Around one fourth i.e. 26.5% of EC member (n=57) are completely non-literates.

Caste composition of EC: Caste wise, around two third of EC members (66%, n=142) are from ST and SC

communities. Only STs comprise of 33.5% (n=72) and SCs comprise of remaining 32.6% (n=70). 28.8%

(n=62) are from OBC and 5.1% (n=11) are from General Castes. Out of the total GPLFs, at least 5.1%

(n=3) have exclusively SC members and 6.8% (n=4) have exclusively ST members in their EC. There are

18.6% (n=11) of GPLFs which have only OBC members in the EC. The remaining 69.5% (n=41) have EC

members belong to mixed caste communities.

Occupation of EC members: The assessment shows that 61.4% (n=132) pursued any occupation, mostly

agriculture and wage earning. The rest 38.6% of EC members (n=83) were dependent on their family

members for livelihood.

Poverty level of EC members: It was also found that majority i.e. 71.2% of EC members (n=153) are BPL

card holders.

3.6 Services and Activities of GPLFs

Entry Fees, Service Charge, Savings and Credit: All the GPLFs collected one time entry fee from the

SHGs, which range from Rs.10/- to Rs.50/- p.m. Apart from this, the GPLFs collect service charge ranging

from Rs.10/- to Rs.100/- from the SHGs. None of the GPLFs was found where service charge was

regularly paid by the SHGs. Interestingly the amount generated from entry fees and service charges are

returned back to members for attending the monthly meeting. In some GPLFs, the amount given to

members for attending the monthly meeting was more than the amount collected as service charge. A

60% of EC members have

education of 5th or above.

66% of EC members belong to

ST and SC communities.

61.4% of EC members pursue

any occupation.

71.2% of EC members are BPL.


part of this fund was also deposited with BLFs as their service charge. As a result, there was hardly any

money left with the GPLFs either in the bank or in their hand for managing their own expenditure.

The assessment also found that out

of the total GPLFs, only 14 (23.7%)

mobilize savings and 4 (6.8%)

provide loan services. The savings

are mobilized from the SHGs and /

or from the members of GPLFs. In

none of the districts, the GPLFs

were taken as intermediary for

transferring of fund to the SHGs.

None of the GPLFs had taken bank

loan which limited their scope for

providing loan services to SHGs.

Due to improper maintenance of records, the assessment team could not gather the amount of funds

generated and managed by the GPLFs.

Engagement in social and community development activities: The GPLFs were hardly involved in any

social and community development services. In less than 20.3% of cases (n=12), the GPLFs only

mobilized the SHGs to conduct rally on addressing alcoholism, malaria, etc. In other cases, they played

an intermediary role for transferring of information to SHGs on key decisions taken at the BLF e.g.

gradation of SHG, revolving fund support to SHG, observing breast feeding week, cleaning surroundings

of tube wells and village ponds, etc.

3.7 Engagement & Interest of GPLFs in HNWASH

As a GPLF, none of them was directly involved in any HNWASH activity. As mentioned above, they only

pass on information to SHGs relating to various HNWASH activities. The assessment team also observed

that ASHA is a member in some of the GPLFs which helps to create awareness on use of mosquito net,

clean drinking water, toilet, etc; and helps to mobilize beneficiaries for attending VHND through SHGs.

Based on the ability and status of managing GPLFs, the assessment team found that only 47.5% (n=28)

have the potential to mobilize community on HNWASH. The rest requires capacity building, guidance

and support for undertaking the same.

Two third of GPLFs (67.8%, n=40) have expressed their interest to take up HNWASH activities in the

community.

Irregular payment of monthly

membership fees by SHGs.

GPLFs face financial constraint due to

low income of federation.

Very few GPLFs were involved in

HNWASH (only indirect involvement

through SHGs).


3.8 Governance & Management Practices of GPLFs

In general, the governance and management practices followed by the GPLFs are quite poor. Only 20.3%

of GPLFs (n=12) have explicitly written down the norms in minutes / resolution book.

Only 64.4% of GPLFs have met at least

once after their formation. This includes

59.3% (n-35) of GPLFs where general

body and executive members meet

jointly; and 5.1% of GPLFs (n=3) where

the EC members meet exclusively. The

rest 35.6% (n=21) of GPLFs did not meet

at all after their formation.

In half of GPLFs (50.8%, n=30), the

meeting was held on monthly basis, of

which only 15.3% of GPLFs (n=9) had

meeting on a regular basis. Interestingly,

none of the GPLFs witnessed more than

81% of members attended the last EC meeting. Likewise, hardly any GPLF recorded more than 81% of

members attended the last general body meeting

Also, hardly any GPLFs are there where all the EC members had clarity on the objectives and norms of

federation. Lack of participation in the meeting and clarity of members on the objectives and norms of

GPLFs clearly shows the minimal engagement of EC members in the governance and management of

GPLFs.

Book keeping was found to be another key weakness of GPLFs. Although the resolution books are

maintained by 37.3% of GPLFs (n=22), 36.4% (n=8) of it had either missing information or error. Same is

the case with cash register being maintained (25.4%, n=15) by the federations, but had error or missing

information (66.7%, n=10). Only 8 (53.3%) out of 15 GPLFs follow double entry system for maintaining

the cash book. The experience in managing funds by the federation stands poorly at 15.3% (n=9), with

initiative for accounts audit at only one GPLF. Probably the expected guidance / assistance / support by

the BLF (0.0%) to the GPLF attributes to such low level practices at the GPLFs.

3.9 Training Undertaken and Conducted by GPLFs

Very low percentage (6.8%, n=4) of federations underwent some trainings, as a result, only one GPLF

(1.7%) in turn could impart training to SHGs in the village. Members showed interest and willingness to

get trained on various income generation avenues.

Meeting of 35.6% of GPLFs was never

held. In most case, the meeting was

irregular

Low attendance of members in the

meeting affecting decision making and

management of GPLFs

Improper or non-maintenance of

records / registers by GPLFs


3.10 Gradation of GPLFs

Similar to SHGs, the gradation of GPLFs was done around four key indicators like formation &

membership; infrastructure and logistics; services and activities; and management & governance of

GPLFs. Among all the indicators mentioned here, the GPLFs scored poorly (85.5% of GPLFs scored marks

25% or below, n=53) in services and activities undertaken by them. Next lowest score was obtained in

infrastructures & logistics related indicators (80.6% of GPLFs scored marks 25% or below, n=50). Average

scores were obtained in indicators relating to formation & membership; and management and

governance of GPLFs.

Table 6: Gradation of GPLFs


N % N % N % N %

Grade A (76% or above) 0 0.0% 0 0.0% 0 0.0% 0 0.0%

Grade B (51% to 75%) 0 0.0% 1 5.9% 0 0.0% 1 1.6%

Grade C (26% to 50%) 9 34.6% 13 76.5% 4 21.1% 26 41.9%

Grade D (25% or Below) 17 65.4% 3 17.6% 15 78.9% 35 56.5%

Total 26 100.0% 17 100.0% 19 100.0% 62 100.0%

The overall gradation of GPLFs show that almost all i.e. 98.4% (n= 61) secured marks less than 50%

which comprise 56.5% of GPLFs (n=35) in Grade-D and 41.9% (n=24) in Grade-C. Only one GPLF in the

three study districts could secure Grade-B. None of them obtained Grade-A.

3.11 Problems/Constraints Faced by GPLFs

The key problems/constraints faced by the SHGs are as follows:

i) Not having their own building and other logistic facilities

ii) Lack of training/guidance

iii) Mismanagement of GPLF activities

iv) Lack of government support (technical and financial)

v) Non-attendance of members in the GPLF meeting

vi) Financial constraint to meet the GPLF expenses

3.12 Future Priorities and Expectations of GPLFs

The major priorities of GPLFs are undertaking and promoting business/income generation. Participation

and involvement in Government schemes/programs stood as second most important priority followed

by strengthening and reforming SHG operations.

The key expectations of GPLFs are to get financial support; training & guidance; and greater recognition

and representation at the Block, District and State level.

***


CHAPTER - IV

4. BLOCK LEVEL FEDERATIONS (BLFs): FINDINGS OF THE

ASSESSMENT

The assessment covered a total of 12 sampled BLFs from the three identified districts of Odisha. Each

district (Bolangir, Rayagada and Kandhamal) had a sample of 4 BLFs. The findings of the assessment of

these 12 BLFs are structured and presented under different sections of this chapter.

4.1 Formation of BLFs

All the block federations have been formed by the initiatives of

the ICDS and Mission Shakti of DWCD. Except Muniguda, the

BLFs in rest 11 Blocks were formed during the period 2003 and

2008. The BLF in Muniguda was formed long back in 1997,

which is the oldest BLF covered in the study.

The formation of BLF was done as per the guideline issued by Mission Shakti i.e. two members from

each GP represented in the BLFs. Since the formation of GPLFs was not complete in some of the GPs,

members from selected SHGs were asked to represent at the BLF. The BLFs were formed under the

guidance & support of CDPO and Sector Supervisors where all the representatives from the GPs were

invited to a meeting at the Block level for forming the BLFs. The probable benefits of the federation of

SHGs at the block level were explained and discussed with the representatives in the meeting. In some

Blocks, the Block Development Officer (BDO), Additional

BDOs and Project Assistant (PA) also participated in the

formation process of BLFs. In Kandhamal district, some of

the Block federations (e.g. BLF in Chakapada Block), after

being operational for some months, got dismantled due to

riot in the district which had been reformed and

reconstituted before 3 to 4 months of assessment.

Legality, Norms

and By-laws: The

CDPO, Block

supervisors and

Mission Shakti Coordinator took a lead role in getting all

the documentation in shape to fulfil the registration

criteria. The BLFs adopted MOU, By-laws and other

formalities that were provided by the State. All the 12 BLFs

BLFs were mostly formed

during 2003-08 by the ICDS

functionaries in the Block.

All the 12 BLFs are

registered under Societies

Registration Act, 1860.

Registration Certificate of BLF, Padampur, Rayagada


are registered out of them 11 are registered under Societies Registration Act, 1860 and the rest one (BLF

in Bissam Cuttack Block of Rayagada district) is registered under Odisha Self Help Cooperative Act, 2001.

The registration of BLFs was done by the CDPO and Multi Purpose Worker (MPW) of the respective

Blocks. Each of the block federation has developed its own norms (mostly around entry fees, monthly

contribution and meetings) in addition to the ones in the By-laws. In few of the Blocks, the By-laws are

in English language which most of the members of BLF are unable to read and understand. The By-law

was also not explained to the members in most of the BLFs.

4.2 Purpose of Forming BLFs

Unlike the SHGs and GPLFs, most of the BLFs (83.3%, n=10) informed empowerment of women as their

main purpose behind forming the federations. Economic development, particularly the promotion of

business / income generation was reported by 58.3% (n=7) followed by taking-up of social development

activities by 41.7% of BLFs (n=5) as the main purpose behind forming the federation.

District wise, all the BLFs (100%) in Bolangir and Kandhamal district said empowerment of women as the

key purpose of forming the federation whereas half of BLFs (50%) in Kandhamal and Rayagada districts

consider management of SHGs/Federations as the purpose behind the same.

4.3 Logistics & Infrastructures with BLFs

Building: Most of the federations (75%, n=9) operate in the

Govt. buildings provided by the ICDS inside their office

Women Empowerment

Economic Development

Social Development

Financial Services

Income Generation

Mgt. of SHGs/Federations

Problem solving & Conflict resolution

100.0%

25.0%

25.0%

50.0%

50.0%

0.0%

0.0%

75.0%

100.0%

50.0%

25.0%

25.0%

50.0%

0.0%

75.0%

50.0%

50.0%

75.0%

75.0%

50.0%

25.0%

Chart 2: Purpose of formation of BLFs (in %) Rayagada

Kandhamal

Bolangir

All the 12 BLFs have space

provided within ICDS to

conduct their activities.


premises. Only 2 (16.7%) BLFs in Rayagada district have own building constructed within the office

premises of ICDS. The Block federations with the financial support from the Government have

constructed their own buildings. In brief, all the BLFs have at least one room to operate, which is mostly

used for the meeting of members and for the daily operations of MPW and Mission Shakti Coordinator.

Assets: Almost all the BLFs have their own assets such as Chairs, Tables, Almirahs and Mattress for

running the office of federations. These items are being used

as per the requirement.

Computers: Almost all the BLFs have been provided with

computer by the Government. As per the information

furnished by members, 11 (91.8%) out of 12 BLFs have

computer. Only the BLF in Bissam Cuttack Block of Rayagada district did not have a computer. The

assessment also found that the computers of 2 BLFs (Chakapada Block in Kandhamal and Kashipur in

Rayagada) were in defunct condition. Importantly, while 11 BLFs have computer, only 4 of them

(Chakapada, Phiringia & Raikia BLFs in Kandhamal and Padampur in

Rayagada) have skilled person to operate the computer. Earlier, the

computer given to BLFs was mainly operated by MPWs for keeping

SHG, GPLF and BLF records. At the time of assessment, most of these

computers were either lying idle or being used by ICDS.

4.4 Bank Account of BLFs

All the federations have at least one savings Bank account at nearby nationalized or Regional Rural

Banks (RRBs). At least 5 BLFs have more than one account. All

of them are joint accounts and mostly being managed by

Presidents and Secretaries of the federation. Few of them

have Treasurers / Cashiers as signatories in the bank

accounts. CDPO is found to be a signatory in at least 3 BLFs.

There is one BLF where the Mission Shakti Coordinator is a

signatory in the bank account. Important to mention here

that the BLFs have opened separate bank account for receiving and managing funds disbursed by

Government under different schemes e.g. MVSN, Swayam Sidha, etc.

4.5 Executive Committee of BLFs

EC Members: In all the 12 Blocks, the Executive Committee (EC) of the BLFs includes President and

Secretary. In addition to them, at least 9 BLFs have Treasurers, 4 have Vice Presidents and 2 have Joint

Secretaries in their EC. The assessment also found that apart from these office bearers, some of the BLFs

have general members (42 in Kandhamal, 25 in Bolangir and 8 in Rayagada) in the EC. In total, the 12

BLFs covered in the study had a total of 114 EC members.

11 out of 12 BLFs have

computer, 9 of them are in

functional condition.


someone to operate

the computer.


additional bank accounts

for different schemes


Tenure: The members of EC have been serving in the BLFs since the time of formation of BLFs in

Rayagada and Bolangir districts. On the other hand, the EC of BLFs in Kandhamal district has been

reconstituted recently after it was dismantled due to riot. There are BLFs where Presidents and

Secretaries were changed as per the requirement. Average number of years completed as an office

bearer / member of EC was 4 years each in Bolangir and Rayagada and 2 years in Kandhamal district.

Appointment of EC members: 50% of BLFs (n=6) adopted selection procedure for appoint of EC

members. The EC members were elected in only 41.7% of Blocks (N=5). Both election as well as

selection procedure was adopted in rest one BLF. The members of almost all the ECs were appointed

from different GPs.

Criteria for appointment of EC members: More than half of the federations chose EC members on the

grounds of their better leadership and management qualities (58%). Having good communication skill

was taken as a criterion in half of the federations (50%). Educational level and mobility of member were

also taken as criteria for selection of EC members.

Role Clarity: There is role clarity amongst the office bearer of BLFs. It was observed that each of them

carries out their defined duties. Most of the Presidents are primarily involved in organizing and

conducting federation meetings at the Block level. They also resolve conflicts within/between groups

and members. Secretaries are mostly engaged in keeping records and doing bank transactions. Similarly,

Treasurers are mostly collecting money from members and depositing them at Banks.

On an average, the Block federations are currently catering to 9 to 23 GP federations, 400 to 900 SHGs

and 6000 to 16000 SHG members in the sample study Blocks.

Education: As compared to SHGs (33.1%) and GPLFs (60%), higher percentage i.e. 66.7% (n=76) of EC

members in the block federation have

education of 5th or above standard. Only

14% are non-literates.

Caste composition: Greater percentages of

members appointed in the EC belong to SC

(37.7%, n=43) and ST (27.2%, n=31%)

communities which combined to 64.9%

(n=74). It is important to note here that the

percentages of ST representation in SHGs

and GPLFs were higher than the BLFs. OBCs

and General Castes constitute 27.2% (n=31)

and 7.9% (n=9) of EC members in the block

federation respectively.

66.7% of EC members have

education of 5th or above.

64.9% of EC members belong

to ST and SC communities.

61.4% of EC members pursue

any occupation

72.8% of EC members are BPL.


Occupations: Similar to SHGs and GPLFs, maximum of the EC members (61.4%, n=70) in the block

federation pursued any occupation for earning daily livelihood, of them the highest were engaged in

agriculture followed by wage earning.

Poverty Level: A greater percentage of members represented in the EC (72.8%, n=83) is a BPL card

holder.

4.6 Services and Activities of BLFs

Entry Fees, Service Charge, Savings and Credit: At the time of formation, one time entry fees was

collected by BLFs from the GP federations. The amount of entry fees collected ranges from Rs.50/- to

Rs.100/-. Apart from the same, service charge from each GPLF is collected to meet the operational costs

of BLFs. Important to mention here that the assessment did not find any uniform pattern for collection

of service charge. In Kandhamal, annual service charge of Rs.400/- is collected from each SHG out of

which Rs.100/- is kept in GPLF and Rs.300/- is deposited with BLF. On the contrary, service charge of

Rs.50/- to Rs.100/- is collected from the GPLFs in Bolangir and Rayagada district. However, in none of

the Blocks, the GPLFs were regular in depositing their service charge with the BLFs.

The assessment team also noticed that the funds generated from entry fees and service charge were

expended / paid back to GPLF representatives for attending the meeting. This was practiced across the

study districts to meet the travel cost of members and to encourage them for regular attendance in the

meeting. As a result, the BLF at the time of assessment did not have any fund with them to meet their

operational costs. Similar financial

constraint was found in other

Blocks of Rayagada, Bolangir and

Kandhamal districts. Interestingly

in some Blocks of Rayagada, the

BLF have stopped paying to

members for attending the

meeting which has created

adverse impact on the

attendance of members in the meeting.

None of the BLFs mobilize savings from the members. At least 10 out of 12 BLFs have received financial

support from the Government under different schemes e.g.

MVSN, Swayam Sidha, etc. for on-lending to SHGs. These BLFs

charge interest on the funds credited to SHGs. The balance funds

currently lying with BLFs amounts to Rs.1,70,000/- to

Rs.25,00,000/-. In at least 9 out of 12 BLFs, the amount of funds

lying with them were more than Rs.11,00,000/-.

Irregular payment of monthly

membership fees by BLFs.

10 out of 12 BLFs received financial

support from Government.


more than

Rs.11,00,000/- as their

Bank balance


Social & Community Development and Other Activities by BLFs: Most of the BLFs were involved in

forming and promoting new SHGs (75%, n=9); and assisted in nutrition and ICDS services (67%, n=8).

Since the federations are attached to ICDS at the Block level, a greater involvement of BLFs was found in

the nutrition linked services. More than half of the federations (58%,

n=7) were found to be involved in training and capacity building;

monitoring of services; and conflict resolution & problem solving. Half

of the federations (50%, n=6) were involved in providing book keeping

support; selection of SHGs for providing seed money; and addressing

social issues. A quarter to half of the federations was engaged in

promoting use of clean drinking water; supporting in income generation and marketing; promoting

sanitation and education; supporting midday meal service; addressing domestic violence; and grading &

quality assessment of SHGs for providing loan. Very few of the federations (17%, n=2) were involved in

linking the SHGs with PDS service.

4.7 Engagement & Interest of BLFs in HNWASH

Specific activities undertaken by BLFs in relation to HNWASH are as below:

All the 12 BLFs have expressed their interest to get involved in the HNWASH activities.

4.8 Governance & Management Practices of BLFs

Group Meeting: Out of the 12 BLFs, 11 hold the General Body (GB) meeting. Maximum i.e. 41.7% (n=5)

of BLFs hold a common meeting of GB and EC on monthly basis. 25% (n=3) conduct the GB meeting

annually followed by 16.7% conduct in every six months and 8.3% (n=1) conduct the meeting on

quarterly basis. Majority i.e. 81.8% of GPLFs (n=9) conduct the GB meeting regularly. Unlike the GB

Health (n=7)

•Creating awareness on malaria and diarhoeea

•Conducting rallys on dengu, malaria, etc.

•Mobilising SHGs to support in VHND

Nutrition (n=8)

•Mobilizing SHGs to promote mother and child nutrition e.g. proper intake of food during prepgancy, EBF, complementary feeding, etc.

•Mobilising SHGs to observe breast feeding week

•Overseeing the preparation and distribution of THR by SHGs

Drinking Water (n=5)

•Promoting use of clean drinking water, bleaching powder and halogene tablet

•Supporting SHGs for repairing of tubewell

Sanitation & Hygeine (n=5)

•Mobilising SHGs for cleaning of village roads and surrounding of tube wells

•Promoting use of toilet

All the 12 BLFs were

involved in HNWASH

activity.


meeting, majority of BLFs hold the EC meeting on monthly basis (83.3%, n=10) followed by one each

(8.3%, n=1) conduct the meeting on weekly / half yearly

basis. But only 50% of BLFs (n=6) organize the EC meeting

regularly. The assessment also found that there are only

33.3% of BLFs (n=4) where more than 80% of members

attended the last EC meeting. The topics mostly discussed

in the last meeting are formation of new SHGs and

providing support to ICDS on delivery of nutrition services

(n=3). Discussion on drinking water, sanitation and health

promotion were held in lesser number of BLFs (n=2).

Management and Decision Making: The day to day functioning of maximum of BLFs (50%, n=6) was

managed by the Mission Shakti Coordinator or ICDS functionaries. In rest 50% of BLFs, it was managed

by the members of the EC. The assessment findings also show that the decision in maximum i.e. 58.3%

of BLFs (n=7) was taken by all the EC members together whereas only office bearers were involved in

decision making in the remaining 41.7% of

BLFs.

In only 3 (25%) BLFs, most of the members

(i.e. above 80%) were actively involved in the

activities of federation. There is only 1 BLF

where more than 80% of members have

clarity on the objectives and norms of

federation.

Book Keeping and Documentation: All the 12

BLFs (100%) maintain cash book followed by

11 (91.7%) maintain minutes book. Majority i.e. 81.2% (n=9) follow double entry system for maintaining

the cash book. Only 50% each maintain the resolution book and the loan register. Less than 50% of BLFs

maintain service charge collection register (n=5), stock register (n=4) and general ledger (n=3). But out

of those who maintain different registers, majority i.e. 83.3% updated loan register followed by 75%

each updated cash book and stock register and 72.7% updated minute book. The assessment team

observed that the records / registers maintained by the BLFs are better than the GPLFs and SHGs which

could be due to higher education, knowledge and skill level of the EC members of BLFs.

4.9 Training Undertaken and

Conducted by BLFs

Except one BLF, the EC members of the rest 11 BLFs

attended some training. The training undertaken by

the BLFs are on skill up-gradation, leaf plate stitching,

SEFA training, THR preparation training, etc.

Decision in half of BLFs was taken

by MPWs and ICDS whereas in rest

half it was taken by EC members.

Most of the BLFs have updated

records / registers.

81.8% of BLFs conduct general

body meeting regularly

50% organize EC meeting

regularly.

Members in almost all BLFs

attended any training whereas

50% of them have experience of

conducting training.


Unlike GPLFs and SHGs, at least 50% of BLFs (n=6) have experience of organizing training for the SHG

members. The trainings organized by the BLFs are on skill up-gradation, book keeping, plantation, etc.

4.10 Gradation of BLFs

Overall, the block federations obtained better grades for their performance than GPLFs and SHGs.

Maximum i.e. 10 (83.3%) secured Grade-B and one each secured Grade-A and Grade-C. Greater

percentage of marks was obtained in management and governance of BLF (58.3% of BLFs secured more

than 75% marks, n=7) and in formation, membership and legality of BLF (50% of BLFs secured more than

75% marks, n=6).

Table 7: Gradation of BLFs


N % N % N % N %

Grade A (76% or above) 0 0.0% 0 0.0% 1 25.0% 1 8.3%

Grade B (51% to 75%) 3 75.0% 4 100.0% 3 75.0% 10 83.3%

Grade C (26% to 50%) 1 25.0% 0 0.0% 0 0.0% 1 8.3%

Grade D (25% or Below) 0 0.0% 0 0.0% 0 0.0% 0 0.0%

Total 4 100.0% 4 100.0% 4 100.0% 12 100.0%

4.11 Problems/Constraints Faced by BLFs

The major problems / constraints faced by the federations are not having own office building; lack of

knowledge & skill of members; mismanagement of BLF activities; book keeping/documentation; inability

to do business; lack of support from government; lack of transportation facility for undertaking any

business; and low percentage of attendance in the meeting.

4.12 Future Priorities and Expectations of BLFs

The future priorities of the BLFs are to take-up business / income generation; taking-up development /

government programs; providing savings and credit services; managing PDS; etc.

The supports expected by the federations are as follows: Training on skill up-gradation; Financial

support; Training on book-keeping/ documentation; Take-up government programs; Co-ordination with

district level federation; Market linkage; Training on HNWASH; Own office building; Office and other

income generation assets; Regular supervision of higher authorities; Guidance and support to

strengthen the GPLFs; Create awareness among the members, etc.

***


CHAPTER - V

5. DISTRICT LEVEL FEDERATIONS (DLFs): FINDINGS OF

THE ASSESSMENT

District level Federation of all the 3 CP start-up Districts namely Bolangir, Rayagada and Kandhamal were

covered under the study in order to provide further impetus on their engagement for taking up SHG PLA

cycle on HNWASH. This chapter elucidates the key finding that are illustrated in separate sections of this

chapter.

The assessment strongly acknowledge that ‘the existence of District Level Federation (DLF) is a robust

strategy to enable women to articulate their

aspirations for change and proclaim

connectedness among SHGs at different nooks

and corners of the District though there is a

wide gap between the goal enunciated and the

real situation. It is evident from Table 8 that

two out of the three Federations are in nascent

stage to learn and grow into a strong pressure

group to mobilize, organize federations down level and SHGs; and deal with conflict and confrontation

that may arise time to time.

5.1 Formation and Year of operation of DLFs

Formation process of the DLF was found to be similar across all the 3 Districts that were covered under

the assessment. Prior to formation of DLF; a

general body meeting of members of all the

Block level federations in the District was

convened under the chairmanship of the

District Collector with active participation of

DSWO, ADM, District SHG Coordinator and

allied departmental officials to discuss the

objective and advantage of having District

level Federation and its structure. The very

same day the DLF took its shape ensuring

proportionate representation of members

from each of the BLFs. The members

representing each BLF were nominated to

the Executive Body from among the

Table 8: Month and Year of formation of SHG Federation

District Month and Year of Formation

Completed months of operation

Bolangir November 2011 11 Months

Kandhamal June 2009 41 Months

Rayagada August 2011 15 Months

Excerpt of Mrs. Kumari Poloka, President,

Zilla Mahila Sanchayika Mahasangha,

Rayagada - “The members have to

compromise with the livelihood and

personal liabilities for a greater cause;

hence BLF have chosen persons from

among the team who are motivated and

prudent enough to present on behalf of

them as well as can attend meetings”


members looking into various factors especially members having good communication skill and less

livelihood pressure (who can afford time attending meetings and other DLF related activities).

The response with regard to the purpose of formation of DLF was found to be contrast in case of

Bolangir with rest of the two districts covered during the assessment. When Kandhamal DLF members

believe the DLF is formed only for Business/Income

Generation; both Rayagada and Kandhamal DLFs

were having the understanding that the district

federation is formed for women empowerment and

social development along with economic

development which is central to its formation. DLF

members of Kandhamal also consider some

additional roles of district federation such as

management of conflicts and financial services. But

not all the members could respond to this which pronounces lack of common understanding with some

of the members.

5.2 Goal & Objectives of DLFs

The Goal of the DLF as illustrated in the memorandum and model By-Law of Mission Shakti, Odisha is

“To create a conductive micro finance environment in the state so as to maximize involvement of

households of the state in the SHG movement …”. During assessment the response to the questions

related to this were varied and not focused which indicate inadequate clarity and understanding of

members on the perceived goal and objective of the DLF. The fact is that the memorandum is in English

and the contents were never - shared and discussed in details with the members, except during the

initial general body meeting held at the District. It was surprising to note that the members also have

never made any attempt to seek further clarification

and have signed the By-Laws. Moreover, Bolangir,

DLF could not present their By-Law for reference.

It was good to find that all the three DLFs have

acquired legal entity status on the same year of its

formation by registering under Societies Registration

Act, 1860. Additionally Bolangir DLF has been

registered under Cooperative Society Act, 1955. But

the members in all the DLFs require constant attention and effort to broaden their perspective so that

the group can get stronger slowly to take on big challenges and / or activities contributing to the

sustainability and empowerment of SHGs and their federations.

Initially we were getting Rs.50/- to attend

meeting at District which is discontinued since

few months and the transportation cost are too

high these days! …….

Says Mrs. Mamata Panigrahi, Secretary Zilla Mahila

Sanchayika Mahasangha, Rayagada

Social and economic empowerment of the

women has increased irrespective of their

participation status in the District level

federation…….

Says Ms. Puspa Satpathy, Lady Supervisor cum I/C

District SHG Coordinator, Rayagada


5.3 Logistics & Infrastructures with DLFs

All the three DLFs did not have their own house for day-to-day operation, hence, they had to operate

from Government building for all related business. But due to not having own building, the DLFs

sometimes face disturbances for conducting their meeting in the ICDS premise. The indomitable linkage

of lack of clarity and awareness of members on DLF could be well related with the existing scenario of

operation.

Rayagada DLF, even after its existence for

more than one year do not have any basic

logistic and infrastructure

facilities.Bolangir DLF has got one

Almirahas, their only asset which is used

to keep recods, registers and documents

etc. The status is satisfactory in case of

Kandhamal DLF, which is equipped with

basic requirements like Chairs, Table,

Almirah and a computer and all are in

working condition.

5.4 Bank Account of DLFs

Kandhamal DLF has two savings accounts, where as other two DLFs have one savings account with the

State Bank of India at respective district. All the accounts have joint signatories; in Kandhamal it is by the

President and Secretary; in Bolangir Secretary and treasurer are the joint operator and in Rayagada the

ICDS supervisor is one of the signatories

including the President and Secretary of DLF.

5.5 Executive Body of DLFs

The Executive Body of DLF was constituted

comprising of at least two representatives

each from all the BLFs where as the Working

Committee was formed including fixed

number of elected or selected members

from among the General Body of BLFs. 100%

of the Working Committee members in

Rayagada and Kandhamal are found to be

elected and selected respectively whereas

mix approach was adopted in Bolangir DLF.

Table 9: Perceived Criteria for electing members to Working Committee of DLF

Bolangir Ability and availability of time to participate in meetings

Educational qualification – Able to read and write

Recommendation of Mission Shakti

Kandhamal Non-political

Good communication skill

Having good rapport

Having a mobile telephone

Rayagada Leadership quality

Activeness

Decision making ability

Can spare time for DLF related tasks

The CDPO is supportive in sparing a

portion of the covered entrance of the

ICDS Project Office for DLF meeting.

The meeting continues amidst noise and

interruptions.

At time the meeting is abruptly closed

due to the urgent meeting of the Project.

…. District level Federation, Rayagada


When probed about the decisive factor, that could influence the member’s judgment for electing or

selecting members for constituting the Working Committee; the responses were poles apart for each

DLFs. Table 9 reflects the perception of members in terms of expected qualities and abilities in a

executive members.

While DLF members in Bolangir and Rayagada expressed willingness to spare time for DLF related

activities, it could not be translated into action due to financial constraint of the federations.

The membership tenure of Executive Committee is two years extendable to another six month upon

satisfactory performance of the members as per the By-Law. Hence in Kandhamal current executive

members are re-selected after end of the 1st term (2 and half years) though except few new addition

most of the members remained unchanged and in rest of the two districts the initial selected members

are continuing.

Personal profile of the Executive Body reflects nearly 70% of the members fall within the age group of

30 to 40 years and caste wise over 60% of the members represent vulnerable section (ST and SC) of the

community. 100% of the members are found to be Hindu. APL and BPL status found almost matching in

all the three DLFs. Wide variation observed in educational status of the members, especially between

Rayagada with rest two Districts. Very few members in Rayagada DLF have completed 7thclass whereas

more than 65% members are educated beyond 7th class in other two DLFs.

5.6 Services and Activities of DLFs

The DLF of Kandhamal and Rayagada found having active engagement in various financial as well as non-

financial activities such as promoting SHGs, management of BLF and GPLF; organizing awareness

generation programmes for health promotion, safe drinking water and personal and environmental

sanitation besides addressing various social issues in their areas. Few of the trained DLF members are

also supporting capacity building of SHGs in their vicinity. On the contrary Bolangir DLF found to be in a

very fragile stage with completely no activity.

Review of financial status revealed that, Bolangir and Rayagada DLF have the total savings of Rs.700/-

and Rs.10, 475/- only; which is generated out of the membership fees and service charge. Kandhamal

DLF found having an amount of Rs.91,880/- generated both from membership fees, service charge and

profit from trading of Sugar and Bengal Gram.

5.7 Engagement & Interest of DLFs in HNWASH

As already mentioned in the previous section Bolangir DLF does not have any experience in the

HNWASH related activities, though when probed they expressed their willingness to contribute in these

areas under guidance and support. Rayagada and Kandhamal DLF with their past engagement in some of


the related activities also requested to include them in

carrying forwards awareness generation and social

mobilization activities on HNWASH.

5.8 Governance & Management

Practices of DLFs

Mission Shakti has a prescriptive memorandum which is to be followed by federations at various levels.

Ironically, the memorandum was kept with the ICDS functionary and was not given to DLF in Rayagada

and Bolangir districts. Absence of an individual office or set-up attributed largely to this condition of the

DLFs. As previously mentioned Rayagada DLF did not have any assets even an Almirah so that they could

keep their records and registers including important letters and documents. Hence all the documents

are being kept either with the Secretary who is managing all record keeping related task or with the SHG

Coordinator I/C as such it is difficult to access any information in absence of the document keeper.

According to the record and interaction with the members it was noted that activities are planned and

organized as and when basis except in Kandhamal which prepares plans in advance of action on a

quarterly basis and then implements the same. - The decision on -activities for the DLF is taken by all the

members jointly whereas it is the President and Secretary in Rayagada who decide the activities. In

Bolangir, the district government functionaries decide action for the DLF.

Most importantly less than 25% of Executive Committee members of Bolangir DLF only have the clarity

on goals and objectives. The percentage is same in case of involvement of members in the activities of

the DLF. Additionally the members of the Bolangir DLF lack prior experience of managing any fund. DLF

of Rayagada and Bolangir have previous experience of fund management. It was good to know that

Kandhamal DLF have engaged a person as Programme Manager for Rs.4,500/- to ensure smooth and

steady implantation of activities.

5.9 Training Undertaken and Conducted by DLFs

The assessment clearly focused on the capacity building need of the DLF members in various related

areas looking into their envisaged role in women empowerment and poverty alleviation. Though all the

DLFs were extended training and capacity building support at different level by Mission Shakti and allied

departments; the coverage of members is limited to President and Secretary in most of the cases and

occasional inclusion of 1 or 2 selected active members. Selected members of Kandhamal and Bolangir

DLF have undergone only Chhatua preparation and Capacity Building training --where as members of

Rayagada DLF have undergone training on hand-wash, Nutrition and Health besides Chhatua

preparation and Capacity Building training. The trained members were used as resource persons for

trainings of other SHGs in the District.

We will demonstrate and mobilize our

community to practice health behaviour in our

areas …………

Members, District Level Federation, Kandhamal


5.10 Gradation of DLFs

Gradation of DLFs was done using the same four indicators as applied in case of GPLFs and BLFs.

Systematic screening of information shows Kandhamal DLF (72.9% of score, Grade-B) is doing better in

all most all the four indicators followed by Rayagada (51.4% of score, Grade-B) who is weak in the areas

of services & activities; and Logistic & infrastructure. Bolangir DLF scores (37.1% scores, Grade-C) the

least in all the indicators as compared to other Districts. Table -10 reflects score against each indicator

by District for having a comprehensive understanding on the core areas of DLFs such as formulation of

norms of federation, existence of amenities, involvement in activities and management system.

Table 10: Gradation of DLFs


N % N % N % N %

Grade A (76% or above) 0 0.0% 0 0.0% 0 0.0% 0 0.0%

Grade B (51% to 75%) 0 0.0% 1 100.0% 1 100.0% 2 66.7%

Grade C (26% to 50%) 1 100.0% 0 0.0% 0 0.0% 1 33.3%

Grade D (25% or Below) 0 0.0% 0 0.0% 0 0.0% 0 0.0%

Total 1 100.0% 1 100.0% 1 100.0% 3 100%

5.11 Problems/Constraints Faced by DLFs

Discussion on issues and major constraints of the DLFs revealed that the members of one of the DLF lack

control over its own financial resource. They have to wait and obey the decision of SHG Coordinator or

the DSWO for any decision that have financial implication whcih at times is both time consuming and

deter them for taking up diverse strategic choices based on the needs of their members and the

opportunities out there. Similarly the discontinuance of reimbursement of partial transporation cost of

Rs.50/- has impeded attendance in DLF meeting considerably in Rayagada. Most of the members being

from the deprived section of the community whose livelihood largly depends on their daily income find

it hard to pay from pocket which is an additional lose including a days wage.

All the DLFs found it very difficult to operate from a shared premises which force them to change their

meeting dates on several occasions due to other emergency engagement of the department. All the DLF

members have also expressed their interest for planned orientation of members on various Government

programmes and schemes, record maintenance, book keeping, livelihood activities, etc. to broaden their

understanding and skill to prove themselves as a well meaning group with strong entrepreneurial ability.

5.12 Future Priorities and Expectations of DLFs

Though the DLF of SHGs has been evolved to promote solidarity among the SHGs and its federation, the

intention get diluted due to several limitations as felt by all the members of the DLFs. As expressed by


some of the members “they are unable to take up larger issues due to lack of knowledge and exposure”

which calls for the need of capacity building activities for all the members.

Many of the members of the DLFs have great potentiality and interest to manage and maintain records

and registers if properly orientated and guided.. Need of an independent office and basic infrastructure

to run routine activities and organizing meetings for developing a structured and synergetic work plan

was amongst the top priorities of the DLF in all the 3 Districts.

The members of Kandhamal DLF expecting support in marketing of SHG products through linkage with

potential private sectors and / or markets. -

***


CHAPTER - VI

6. STRENGTH AND WEAKNESS MATRIX OF SHGs AND SHG-

FEDERATIONS

6.1 Strengths and Weaknesses of SHGs and SHG-Federations

Based on the study findings, the assessment team identified following strengths and weaknesses of the

SHGs and SHG-Federation which would be highly useful for working out the modalities of undertaking

SHG-PLA intervention on HNWASH.

Table 11 Key Strengths and Weakness of the SHGs and SHG-Federations

Strengths Weakness

A. Self Help Groups (SHGs)

Most of the SHGs have considerable years of

experience in operation and management of

groups

Majority of group members are found non-

literates.

Maximum members in this three districts belong

to marginalized communities (ST and SC)

Majority of SHG members are daily wage

earners

Caste, age and economic homogeneity of

members in maximum of SHGs are found

Savings & credits have predominance over

SHGs

Majority of SHGs have strong linkage with Bank (

micro credit) and / or Government schemes

related to SHGs

Books / registers of the SHGs are not

maintained properly

Most SHGs are found to take collective decisions Most of the SHG members are not exposed

to any kind of trainings. Selected SHGs covered have shown major

interest towards HNWASH issues

Meetings are regular among most of the SHGs

having higher attendance

SHGs demonstrated strong evidence of mobilizing

communities

B. Gram Panchayat Level Federations (GPLFs)

Maximum members in the Executive Committee

are from marginalized communities (ST and SC)

All GPLFs are not registered except one

Caste, age and economic homogeneity of EC

members are found

None of the GPLFs was linked with Bank

and / or any Government schemes.

Most of the of EC members have passed 5th No experience in direct handling of funds



Strengths Weakness

standard or above under any schemes

Government run premises are being used by the

GPLF for conducting meetings

Poor maintenance of books / registers by

GPLFs

Most of GPLFs have shown interest to get

involved in HNWASH activities

Many of the GPLFs do not meet at all.

Those who hold meeting, low attendance

and irregularity of meeting are found to be

the key problems.

No training is done at GP Federation

C. Block Level Federations (BLFs)

The federations are in existence and operational

for more than 5 years

Irregular and low attendance in EC meeting

All the BLFs are registered and are having bank

accounts

In almost half of the BLFs key decisions are

taken by EC members not involving other

members

In all BLFs maintained bank accounts’ one of the

authorised signatories is CDPO/ICDS supervisor

Most of the BLFs members are largely

dependent on the Mission Shakti supervisor

in day to day operation

Considerable experience in managing funds Self-generated corpus is less due to

overburden of expenses

All most all EC members have education above 5th

standard

Irregular payment of membership fee by

GPLFs

Most of the members are found to be from

minority communities (ST and SC; BPL)

All most all BLFs are linked with the Government

schemes

Monthly Block level reviews are conducted by

respective CDPOs

Meetings are held regularly

Prior experience in involvement of HNWASH

activities

Majority own or have access to basic minimum

infrastructures e.g. space and minimum assets

Majority have computer facility

Most of the trainings are done at block level

Majority of members have attended skill based

training and most of them have experience of



Strengths Weakness

conducting training

Account related records/registers, resolution

books etc. are maintained and updated properly

D. District Level Federations (DLFs)

Mission Shakti Coordinators are in place Mostly driven by functionaries of District

administration with regard to operation

and management of district federation

Have strong liaising with the district

administration

Periodic review by district administration Lack of understanding towards common

issues of SHGs including training and

capacity building

All three DLF are Registered body with legal

entity, having one or more than one bank

accounts

Funds directly transferred to the BLFs

without involving DLFs

Meet monthly to discuss social issues and

activities

Geographical diversity restricts

participations of every block

Most of the members are educated up to

7thstandard and more

Lack of allowances prevents cross section

of members participating in Governing

body meetings

Shown interest to take up HNWASH related

activities

Excepting Kandhamal key engagement

related to trade, business, skill building are

mostly taken up at the BLFs

No separate space is available for day to

day function of DLFs. Operate from office

of DSWO

***


CHAPTER - VII

7. RECOMMENDED MEASURES FOR UNDERTAKING SHG-

PLA INTERVENTION UNDER CP

7.1 Recommended Measures for Engagement of SHGs in PLA on HNWASH

i) SHG needs systematic and continuous orientation to identify and encourage action on social

determinants relating to HNWASH

ii) SHGs need to be involved on social mobilization drive to encourage more women

participations in economic and social empowerment

iii) SHGs can extend their existing support on supply side response to demand side response to

social development programmes

iv) SHGs need more platform for expression of views relating to issues affecting their life,

beyond regular meetings

7.2 Recommended Measures for Engagement of GPLFs in PLA on HNWASH

i) GPLFs needs extensive hand holding support in establishing and discharging their existing

roles and responsibilities

ii) Greater linkages required between the BLFs and DLFs

7.3 Recommended Measures for Engagement of BLFs in PLA on HNWASH

i) To have a vibrant BLF involvement of other GB members needs to be ensured

ii) Beyond capability to handle higher financial transactions, interaction with various

stakeholders and record keeping, BLF needs to streamline their own financial structure and

systems for financial and operation management.

iii) BLFs can be the nodal centres for SHG PLA implementation, as they have prior experience of

monitoring and review mechanism of SHGs at block level.

iv) Financial support can be extended directly to the BLFs, as all of them are registered and

operating multiple bank accounts over a period of time

7.4 Recommended Measures for Engagement of DLFs in PLA on HNWASH

i) Geographical location restricts regular participation of the DLF members. Practical solutions

need to be developed district wise.


ii) DLFs needs extensive hand holding support in establishing and discharging their existing

roles and responsibilities

iii) Greater linkages required between the BLFs and GPLFs

7.5 Recommended Measures for Fund Transfer and Management

On the grounds of financial assessment made, following measures may be taken for transfer and

management of funds.

i) Funds shall not be routed through district federation or GP federation on account of their lack of

past experience in handling funds.

ii) Block federation may be chosen as a medium of fund transfer in view of the past experience of

handling funds and maintenance of accounts under double entry system, subject to the

observation of strict guidelines as follows:

a) There shall be a memorandum of understanding between the federation and the funding

agency

b) Funds shall be released to the federation only for specific reason outlined in the MOU.

c) The funds shall be credited to the bank account, which shall be operated under the joint

signature of secretary of the federation and concerned CDPO.

d) No payment shall be released by the federation except by way of crossed Cheque/DD

e) The federation shall submit monthly report of receipt and payment of funds under the

arrangement

f) The federation shall keep proper records of transaction under the arrangement

g) TMST will ensure training of two members from each federation on financial management.

***


ANNEXURES

Roles & Responsibilities of SHG Federations in Odisha Source: Operation manual for SHG Federation in Odisha

Gram Panchayat Level Federation (GPLF)

i) Acting as an intermediary between the member SHGs and the block level federation ii) Assisting the federation functionaries in formation of new groups iii) Maintaining relationship among all the SHGs in its jurisdiction iv) Collection of fee, service charge from member SHGs on a regular basis v) Capacity building need assessment of the SHGs in its jurisdiction vi) Conflict resolution in the SHGs and among the SHGs vii) Helping the SHGs in loan recovery viii) Collecting the monthly report from the SHGs, consolidating them and forwarding it to the BLF by the due

date ix) Regular monthly meeting on various issues of the SHGs in its jurisdiction and recording the proceedings

in a register x) Communicating the issues to the BLF to address and intervene if required xi) Providing feedback to the SHGs xii) Supervising / monitoring group activities xiii) Any other activities to fulfil the objectives of the federation

Block Level Federation (BLF)

i) Networking and maintaining relationship among all the GPLF in its jurisdiction ii) Facilitating financial services such as savings, credit, pension, insurance, remittance, etc. for the member

SHGs iii) Provisioning of financial services such as savings, credit, pension, insurance, remittance, etc. for the

member SHGs iv) Helping the member SHGs in delinquency management v) Liasioning and networking with financial institutions, banks, line depts. vi) Capacity building needs assessment of the SHGs, federation leaders, staff vii) Capacity building through training and hand holding in book keeping and accounting viii) Ongoing monitoring and supervision ix) Auditing x) Periodic grading and quality assessment xi) Conflict resolution and problem solving among SHGs, GPLF xii) Providing support on livelihoods promotion and microfinance plus activities xiii) Facilitating skill training, design up-gradation in craft activities and marketing support xiv) Supervising and implementing social development programs xv) Ensuring social and food security for the member groups xvi) Addressing social problems and issues xvii) Facilitating political participation and representation activities xviii) Working towards sustainability of SHGs as well as the federation xix) Collecting the monthly report from the groups, GPLF, consolidating them and forwarding it to the DLF as

and when required xx) Providing feedback to the GPLF and SHGs if required xxi) Any other to fulfil the objectives of the federation


Roles & Responsibilities of SHG Federations in Odisha Source: Operation manual for SHG Federation in Odisha

District Level Federation (DLF)

i) Liasioning and coordination between all BLFs ii) Addressing various issues of the BLFs iii) Coordinating with various banks for timely credit linkage with the SHGs of the BLFs iv) Coordinating with the district administration involving the SHGs in implementation of various government

program through the BLFs v) Consolidating all the block level business development plans to make a comprehensive district business

plan and developing operational and strategic planning at the district level for its execution vi) Consolidating all the months / quarterly / half yearly and annual reports of the BLFs and forwarding it to

Mission Shakti on time vii) Providing feedback to the BLFs viii) Any other activities to fulfil the objectives of the DLFs

Criteria Applied for Gradation of SHG Sl.

No. Key Subject Areas for Grading

Specific Indicators for Grading Maximum Score

Allotted Score

1 Formation and membership

Months of Operation

Less than six months 0

One years and below 1

Two years 2

Three years and above 3

Norms / By-Laws of

Norms/By-Laws developed involving all members of SHG. 4

Norms/By-Laws developed by leaders of 3

Norms / By-Laws given to /form 2

Having written bylaws and norms practiced 1

Absence of any Norms / By-Laws 0

Process of selection of Leaders

Leaders elected 1

Leaders selected 0

Literacy of Members

All members Illiterate 0

Less than 25% members literate 1

25-50 % members literate 2


More than 75% members literate 4

4 Services and Activities

Financial Services by

Providing /receiving any financial services 1

Not providing/receiving financial services 0

Funds Managed in the last one year

No fund managed 0

Rs.50,000/- or below 1

Rs.50,001/- to Rs.1,00,000/- 2

Rs.1,00,001/- and Above 3

Who managed funds





Allotted Score

President 1

General Secretary 1

Treasurer 1

Any others 0

Case book maintained

No 0

Yes 1

Who maintained the accounts

No body 0

Person haired for maintained 1

Person maintained within 2

Involvement of Social Development by SHGs

No Involvement 0

Partially involvement 1

Fully involvement 2

Involvement in HNWASH programme/activities

No Involvement 0

Nutrition 1

Dinking water 1

Sanitation 1

Maternal and child health (MCH) 1

Any other 1

Experience in any community mobilization/organization by SHG

No Involvement 0


Fully involvement 2

5 Governance & Mgt. Practices

Members’ Knowledge about Goal & Objectives of SHG

None 0

25% and below 1

26-50 % members 2

51-75% members 3

76% and above 4

Engagement of Manpower by SHG

Manpower engaged by SHG 1

Manpower not engaged by SHG 0

Decision Making Process

None 0

Only leader/s take the decision 1

Few members take the decision 2

All the members jointly take the decision 3

Meeting by SHG

Weekly 2

Monthly 1

Occasionally 0

Number of group meetings conducted by SHG in the last two months





Allotted Score

No Meeting 0

One 1

Two and above 2

Attendance in the Meeting in the last two months

25% and below 0

26-50 % members 1

51-75% members 2

76% and above 3

Book Keeping / Documentation (by observation)

Poor 0

Moderately 1

Good 2

Audit done annually

No 0

Yes 1

7 Award or Recognition

Any Award/Recognition received by

No 0

Yes 1

Total Grade A: 76% or Above Grade B: 51% to 75% Grade C: 26% to 50% Grade D: 25% or Below

GRADE

Criteria Applied for Gradation of SHG Federation Sl.



Allotted Score

1 Formation and Legality/ document

Months of Operation

Less than six months 0

One years and below 1

Two years 2

Three years and above 3

Registration Under Any Legal Act

Not Registered 0

Applied for registration 1

Registered 2

Norms / By-Laws of Federation

Norms/By-Laws developed involving all members of fed. 4

Norms/By-Laws developed by leaders of federation 3

Norms / By-Laws given to federation/form 2

Having written bylaws and norms practiced without registration 1

Absence of any Norms / By-Laws 0

Process of selection of Executive Committee members

None of the members elected 0





Allotted Score

Less than 25% members elected 1

25-50 % members elected 2

51-75 % members elected 3

More than 75 % members elected 4

2 Logistics and Infrastructures

Office Space of Federation

Own Office Space/House 4

Own Office Space/House by Grant (Govt./NGO) 3

Space/House given by Govt. 2

Rented Space/House for Office 1

No Office Space/House 0

Availability of Computer with Federation

Available with working condition 2

Available but not working condition 1

Not available 0

Is internet facility available?

No 0

Yes not working 1

Yes with working 2

Is any data entry person available to use computer/internet

No 0

Yes 1

Geographic Representativeness of Executive Committee Members

Members represent from 25% or less Blocks in District 0

Members represent from 26% to 50% Blocks in District 1

Members represent from 51% to 75% Blocks in District 2

Members represent from 76% or Above Blocks 3

Literacy of Executive Committee Members

All members Illiterate 0

Less than 25% members literate 1



More than 75% members literate 4

4 Services and Activities

Financial Services by Federation

Providing /receiving any financial services 1

Not providing/receiving financial services 0

Funds Managed in the last one year

No fund managed 0

Rs.50,000/- or below 1

Rs.50,001/- to Rs.1,00,000/- 2

Rs.1,00,001/- and Above 3

Who managed funds

President 1

General Secretary 1

Treasurer 1

Any others 0





Allotted Score

Case book maintained

No 0

Yes 1

Who maintained the accounts

No body 0

Person haired for maintained 1

Person maintained within federation 2

Involvement of Social Development by Federation

No Involvement 0


Fully involvement 2

Involvement in HNWASH programme/activities

No Involvement 0

Nutrition 1

Drinking water 1

Sanitation 1

Maternal and child health (MCH) 1

Any other 1

Experience in any community mobilization/organization by federation

No Involvement 0


Fully involvement 2

Experience in conducting any training programme

No experience 0

Yes 2

5 Governance & Mgt. Practices

Members’ Knowledge about Goal & Objectives of Federation

None 0

25% and below 1

26-50 % members 2

51-75% members 3

76% and above 4

Engagement of Manpower by SHG Federation

Manpower engaged by SHG Federation 1

Manpower not engaged by SHG Federation 0

Decision Making Process

None 0

Only leader/s take the decision 1

Few members take the decision 2

All the members jointly take the decision 3

Activity Planning by SHG Federation

No Planning 0

Monthly Planning 3

Quarterly Planning 2

Half Yearly / Annual Planning by Federation 1

Number of meeting conducted by federation in the last two months





Allotted Score

No Meeting 0

One 1

Two and above 2

Attendance in the Meeting in the last two months

25% and below 0

26-50 % members 1

51-75% members 2

76% and above 3

Book Keeping / Documentation (by observation)

Poor 0

Moderately 1

Good 2

Audit done annually 3

No 0

Yes 1

7 Award or Recognition

Any Award/Recognition received by federation

No 0

Yes 1

Total

Grade A: 76% or Above Grade B: 51% to 75% Grade C: 26% to 50% Grade D: 25% or Below

GRADE

***

Documents

Institutional Assessment of Self Help Groups (SHGs). Mapping-cum... · INSTITUTIONAL ASSESSMENT OF SELF HELP GROUPS (SHGs) AND SHG-FEDERATIONS IN BOLANGIR, KANDHAMAL AND RAYAGADA