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CHAPTER ITEM PAGES
I CONSOLIDATION OF THE POVERTY ERADICATION ACTION PLAN 1-6
II KEY ELEMENTS OF THE CONSOLIDATION PROCESS 7-12
III ORIENTING THE CONSOLIDATION PROCESS 13-16
IV POVERTY AND THE ANDHRA PRADESH CONTEXT 17-30
V MONITORING AND IMPACT ASSESSMENT 31-42
VI EVOLVING ACTION PLAN LOG FRAMES 43-62
VII THE WAY FORWARD 63-66
INDEX
Ref: G.O.Ms.No.219, Dated: 07-07-2003
As has been discussed at the meeting of 25-07-2003 convened by the Chief Secre-
tary, the present draft document has been prepared for consultations at the State
Level before being forwarded to the World Bank and DFID. The primary purpose is to
clarify to the World Bank and DFID that AP already has a viable Poverty Eradication
Action Plan underway.
Apart from the above primary purpose, the document also highlights certain
lacunae in the manner in which the Action Plan of the State Poverty Eradication Mission
is being operationalised, and which requires urgent and concerted action on the part
of other Missions and key Departments for redressal. The institutional linkages outlined,
the model for better management of indicators, new methodologies such as disaggre-
gated poverty analysis and spatial analysis tools, logical framework approach and a
suggested Plan Management and Impact Assessment System (PMIAS) discussed in the
present document, provide a framework for Missions and Departments to refine and
further evolve their action plans and integrate it with the Log Frame of the State Pov-
erty Eradication Mission’s (SPEM) Action Plan.
In the process, they will also require to achieve clarity on how they will inter-
face with the Poverty and Social Analysis Monitoring Unit (PSAMU) under SPEM.
The following factors need to be highlighted in the context of the consolidation
process that this document represents:
1. Currently a valid mechanism is required to ensure that the various Missions are
meeting and playing their mandated role in providing inputs required for taking
forward the Poverty Eradication Action Plan. Appropriate secretariats and exter-
nal professional resources and institutional support networks have also to be in
place for each Mission.
COVERING NOTE TO DOCUMENT TITLED “ CONSOLIDATING AP’S POVERTY ERADICATION ACTION PLAN ”
2. The State Poverty Eradication Mission has to coordinate inputs from other Missions and departments and ensure that their ‘past year performance review’ and ‘ next year plans’ are integrated with SPEM’s own reviews and Annual Plans. This requires SPEM to exercise its prerogatives as the lead Mission for Poverty Eradication and mandate the PSAMU to lead the process.
3. Given the diverse externalities impacting the health sector and the cross-sectoral de-pendencies in achieving targets in health, there is a need to formally constitute a Health Mission (From the point of view of the Action Plan, the assumption adopted is that the Department of Health, Medical and Family Welfare has been functioning in a Mission mode.)
4. While the draft document has identified a few sets of intermediate and final indica-tors, Missions, in consultation with the Departments and other bodies falling within the scope of their mandate, will have to identify the necessary range of indicators re-quired by their Sectoral Action Plans. In the process, they also have to identify appro-priate Annual Review mechanisms aligned to SPEM’s Year-end Review - and Next Year Plan process.
5. To complete the Sectoral strategies and plans, linking indicators, professional support is required to put this in the logical framework approach.
6. The PSU has made valuable learnings in the process of drafting this document, and is willing to deploy these learnings and its resources in continuing to play a facilitation role in taking forward the Poverty Eradication Action Plan.
The last section of the document outlines the steps for the Missions and Departments to take the consolidation process forward to a ‘Final’ Action Plan, which reflects a partici-patory process and which, in its Annual and Five year cycles, truly incorporates community-level, Mandal-level and District-level plans.
The PSU thanks the Chief Secretary, Principal Secretaries, Commissioners and Offi-cials of various departments in supporting the Programme Support Unit’s efforts in draft-ing this document.
S.P.Tucker, IAS
Coordinator - PSU
CONSOLIDATION OF THE
POVERTY ERADICATION ACTION PLAN
CHAPTER I
BACKGROUND The State of Andhra Pradesh has a total geographical area of 27.44 million
hectares. Out of a total population of 7.5 crore, the rural population com-
prises 5.5 crore.
As a part of the State’s poverty eradication plan, a large number of
Women’s Self Help Groups have been formed (with a total savings of over
Rs.1500 crore) and networked into federations. Each of the 45,000 habita-
tions today has at-least one Self-Help Group. The membership of Self- Help
Groups is estimated to cross 8.5 million from the present 6 million in the next
few years.
The extreme poor in the State, including the disabled, child labour
and other disadvantaged sections, are being organised under a programme
with special focus termed VELUGU. The Velugu Programme includes the Dis-
trict Poverty Initiative Project (Velugu Phase–I, with a Rs. 593 crore outlay)
and the A.P. Poverty Reduction Project (Velugu Phase– II, with a Rs.1486
crore outlay). Velugu proposes to cover 30 lakh families.
The state has initiated plans to develop 10 million hectares of ‘wasted’ lands
or dry lands, which are also pockets of acute rural poverty. Alongside, pro-
grammes such as the DFID-supported Andhra Pradesh Rural Livelihoods Pro-
gramme (which has joined the ongoing Watersheds Programme) have been
taking forward the need for diversification and non-farm activities and also
bringing previously marginalized sections within the ambit of Sustainable
Natural Resources Management-based developmental initiatives. The Liveli-
hoods Approach thus becomes the focus of the 20,000 proposed watersheds
in the State, of which more than 7,500 are already underway.
The Andhra Pradesh Urban Services for the poor (APUSP) is a Rs. 745 crore
DFID-supported programme already under implementation in 32 urban cen-
tres (Class I Towns). The Project covers poverty eradication, livelihoods, envi-
ronmental and infrastructure issues through participatory processes for as-
sessing needs. The Programme learnings will be scaled up to cover the poor
falling under all the urban local bodies in the State.
CONSOLIDATION OF THE POVERTY ERADICATION ACTION PLAN
As a part of the State’s
poverty eradication
plan, a large number of
Women’s Self Help
Groups have been
formed (with a total
savings of over Rs.1500
crore) and networked
into federations.
6 PSU-APRLP
As a result of the initiatives of Swarna Andhra Pradesh and Janmabhoomi,
rural poverty in Andhra Pradesh has come down to 11% and urban poverty
to 26.6% ( Lakdawalla Methodology).
The total number of people being covered by anti-poverty initiatives
is much more than that indicated in the lead programmes of Velugu and
APUSP. This is especially so since the multi-pronged approach to poverty
eradication has led to poverty-focused strategies and actions in various sec-
tors, where, too, inclusion in programmes is based on Participatory Identifica-
tion of the poor (PIP).
The progress being made by Andhra Pradesh in addressing poverty
effectively is on account of holistic strategies for pro-poor growth and an in-
tegrated Poverty Eradication Action Plan.
To facilitate the integration of resources and achieve convergence,
AP has strategically addressed poverty issues through four key Missions
(the Poverty Eradication, Water Conservation and Utilisation, Literacy,
and Employment Generation Missions) and a focused approach in the De-
partment of Health, Medical and Family Welfare. Each of these Missions,
along with the Departments, Commissionerates and special initiatives contrib-
uting to achieving their goals have set targets and identified indicators.
These were integrated into the Poverty Eradication Strategy of the State
Poverty Eradication Mission (SPEM) and the resultant Action Plan.
However, it has been the State’s strategy to have a dynamic ap-
proach to the operationalisation of the Poverty Eradication Action Plan. This
is essential for optimal plan cycle management and effective feedback for
corrective steps, where required. The process also ensures that the plan
moves through the appropriate stages in becoming truly participatory. In or-
der to achieve these objectives, the government has, in 2003, initiated steps
to consolidate the Poverty Eradication Action Plan and outline the way for-
ward from the critical juncture it has reached.
The consolidation process will facilitate:
a. Enhanced synergy among various Missions and Departments and clarify
their linkages.
The progress being
made by Andhra
Pradesh in addressing
poverty effectively is
on account of holistic
strategies for pro-poor
growth and an inte-
grated Poverty Eradica-
tion Action Plan.
POVERTY ERADICATION ACTION PLAN I. CONSOLIDATION OF THE POVERTY ERADICATION ACTION PLAN
7 PSU-APRLP
b. Build a stronger sense of ownership among all stakeholders in the State’s
Poverty Eradication Strategy and Action Plan.
c. Find agreement on key indicators, both intermediate and final.
d. Facilitate mechanisms for monitoring and evaluation that are participa-
tory.
e. Create an enabling environment for inclusive policies and mid-course cor-
rections.
f. Integrate the Poverty Eradication Strategy and Action Plan more effec-
tively with the budgetary process.
g. Align various sectoral reforms with the Poverty Eradication Strategy and
goals
h. Achieve role clarity, and define the stake and contributions of various
constituents in the Poverty Eradication Strategy and Action Plan.
i. Create a conducive and transparent environment for the Union Govern-
ment’s initiatives in Poverty Eradication and also for initiatives by Donor
Agencies / Lending Agencies, and their closer alignment with the State’s
goals and Strategy in Poverty Eradication.
Processes have been initiated, based on a clear understanding of the
purpose, for further integrating sectoral strategies and Action Plans with the
State- Wide Action Plan of the Poverty Eradication Mission, keeping the fol-
lowing guidelines in mind:
1. As with the Poverty Eradication Strategy, the Action Plan assumes Sector
Wide Approaches and Mission Mode, and the institutional implications of
this needs to be further clarified.
2. The plan horizon for each sector shall be of five years, with Participatory
Annual Reviews and Social Audits.
3. At each stage of review, Intermediate Indicators shall be used to ap-
praise performance vis-à-vis Five Year Plans, Millennium Development
Goals and Andhra Pradesh is Vision 2020.
4. The Action Plan for each sector shall have a Communication Strategy that
addresses the needs of participatory processes.
Processes have been
initiated based on clear
understanding of the
purpose, for further in-
tegrating sectoral
strategies and Action
Plans with the State
Wide Action Plan of the
Poverty Eradication
Mission.
POVERTY ERADICATION ACTION PLAN I. CONSOLIDATION OF THE POVERTY ERADICATION ACTION PLAN
8 PSU-APRLP
STATE POVERTY ERADICA-TION MISSION
WATER MIS-SION
EDUCATION FOR ALL
EMPLOYMENT GENERA-TION MISSION
DEPT. OF HEALTH, MEDI-CAL & FAMILY WELFARE
o To develop a clear vision for poverty eradication and recommend strategies for time bound achievement of this vision.
o Take measures for ensuring convergence of all sectoral plans and programmes.
o Ensure technical updation for sustainable development of the poor.
o Suggest time bound and specific measures for em-ployment security, food se-curity and universal provi-sion of health care, drinking water, housing and elemen-tary education among all poor households.
o Effective implementation of the entitlements and rights of the poor. Especially of women, the scheduled castes., scheduled tribes, the backward classes and the minorities.
o Promote social mobilisation: the self-help and other func-tional groups as the princi-pal mechanism for poverty eradication.
o Provide guidance on the best practices in the national and international spheres.
o Advocate and recommend suitable pro-poor policies and ensure adequate budg-etary allocation.
o Monitor periodically.
o Conservation and judicious use of water in the State.
o To formulate
- Effective plans and methods for conserving wa-ter
- Time-bound action plan for conservation of
water
o To implement the conserva-tion and use of water with the co-ordination of all function-ally related departments.
o To carry-out water conser-vation pro-grammes eco-nomically
o Encourage local people’s participation in water con-servation
o Monitor and assess con-tinuously the water conser-vation pro-grammes
o To obtain the people’s views and suggestions on the ways, means and methods in respect to water conser-vation.
o The primary goal of the state is to in-crease over-all literacy levels from the current 54% of the population to over 95% before 2005.
o Special focus on the back-ward and less literate areas of the State.
o Universalisa-tion of Ele-mentary edu-cation.
o During the next 3 years take adult literacy, through the Akshara Sankranthi Programme, to 105,00,000 Adult illiter-ates.
o A d e q u a t e infrastructure and socio economic con-ditions to be c r e a t e d through con-certed sus-tained and multi pronged action.
o To use mod-ern technol-ogy to im-prove deliv-ery of high quality edu-cation to un-reached ar-eas.
o To develop a vision and strategy for employ-ment generation and to prepare a time bound action plan for imple-mentation of the same.
o To suggest measures to derive synergy of the plans and programmes of various departments working directly or indi-rectly for employment generation.
o Advise on institutional and organisational mechanisms for effec-tive implementation of the Action Plan for em-ployment generation.
o Regularly monitor and oversee employment generation action plans in the State and advise on the future steps to be taken.
o Initiate public debate on important policy is-sues related to employ-ment generation and build consensus for pol-icy reforms related to it.
o Advise on Human Re-source Development through institution build-ing and suggest a framework for optimum utilization of the infra-structure available for training on a continuous basis and identify fresh requirements of infra-structure and the re-sources for training.
o To facilitate manpower planning in key sectors of the economy.
o To identify and advise on the regulatory as-pects of training.
o Every person will have access to responsive ba-sic healthcare and spe-cialised healthcare at affordable prices.
o Women will have safe and successful pregnan-cies. Infant / child mortal-ity due to ailments like ARI and diarrhoea will be reduced drastically.
o The spread of AIDS will be contained
o Communicable diseases like Malaria and TB will be effectively prevented.
o Families will be small and better spaced. Equitable access to quality health care will be ensured. Health sector will be equipped to deliver quality services for non communicable diseases and trauma and injury cases.
o Life expectancy levels will reach 68 years for males and 70.6 years for females from the current 62 years and 64 years respectively.
o Enhancing technical effi-ciency of key programs and clinical effectiveness.
o Ensuring micro/macro economic effectiveness in the use of resources
o Improving quality of care/consumer satisfac-tion
o Assuring systems for long-term sustainability.
AP’s POVERTY ERADICATION ACTION PLAN LEAD MISSIONS AND THEIR MAJOR OBJECTIVES
POVERTY ERADICATION ACTION PLAN I. CONSOLIDATION OF THE POVERTY ERADICATION ACTION PLAN
9 PSU-APRLP
POVERTY ERADICATION ACTION PLAN I. CONSOLIDATION OF THE POVERTY ERADICATION ACTION PLAN
Source: Vision 2020 Swarna Andhra Pradesh
Source: Vision 2020 Swarna Andhra Pradesh
10 PSU-APRLP
11 PSU-APRLP
MILLENNIUM DEVELOPMENT GOALS At the Millennium Summit in September 2000, the states of the United Nations reaffirmed their commitment to working
towards a world in which sustaining development and eliminating poverty would have the highest priority. The Millennium
Development Goals grew out of the agreements and resolutions of world conferences organized by the United Nations in
the past decade. The goals have been commonly accepted as a framework for measuring development progress
There are 8 Goals / 17 Targets and 49 Indicators. The Goals and Targets are given below.
1. Eradicate extreme poverty and hunger Target for 2015: Halve the proportion of people living on less than a dollar a day and those who suffer from hunger. 2. Achieve universal primary education Target for 2015: Ensure that all boys and girls complete primary school. 3. Promote gender equality and empower women Targets for 2005 and 2015: Eliminate gender disparities in primary and secondary education, preferably by 2005, and at all levels by 2015. 4. Reduce child mortality Target for 2015: Reduce by two-thirds the mortality rate among children under five 5. Improve maternal health Target for 2015: Reduce by three-quarters the ratio of women dying in childbirth. 6. Combat HIV/AIDS, malaria and other diseases Target for 2015: Halt and begin to reverse the spread of HIV/AIDS and the incidence of malaria and other major diseases. 7. Ensure environmental sustainability Targets: • Integrate the principles of sustainable development into country policies and programmes and reverse the loss of environ-mental resources. • By 2015, reduce by half the proportion of people without access to safe drinking water. • By 2020 achieve significant improvement in the lives of at least 100 million slum dwellers. 8. Develop a global partnership for development Targets: • Develop further an open trading and financial system that includes a commitment to good governance, development and poverty reduction – nationally and internationally • Address the least developed countries’ special needs, and the special needs of landlocked and small island developing States • Deal comprehensively with developing countries’ debt problems • Develop decent and productive work for youth • In cooperation with pharmaceutical companies, provide access to affordable essential drugs in developing countries • In cooperation with the private sector, make available the benefits of new technologies – especially information and commu-nications technologies.
POVERTY ERADICATION ACTION PLAN I. CONSOLIDATION OF THE POVERTY ERADICATION ACTION PLAN
KEY ELEMENTS OF THE
CONSOLIDATION PROCESS
CHAPTER II
LEVERAGING THE ENABLING ENVIRONMENT AP has a highly enabling environment, the aspects of which include:
1. A definite pro-poor policy focus.
2. A government committed to inclusive policies, governance reforms
and harnessing ICT and other tools for greater transparency and re-
sponsiveness.
3. A large number of Self Help Groups whose networking has created a
tremendous opportunity for building social capital
4. A clear cut vision (Vision 2020) which covers Millennium Development
Goals and exceeds their targets and also identifies the growth en-
gines and reforms that support Poverty Eradication Strategies.
SWARNA ANDHRA PRADESH—VISION 2020 1. a. 1999
• Andhra Pradesh takes stock of its standing on key points • Vision 2020 is initiated. • Growth engines identified
b. Fourteen Cabinet Sub-committees constituted. • Strategies for realizing Vision 2020 goals evolved
c. AP recognizes Poverty Eradication as a core element of socio-economic development d. Poverty Eradication Strategy and Action Plan aligned with the people-owned Janmabhoomi movement e. Poverty Eradication Action Plan put in Mission mode with sector-wide approaches f. State Poverty Eradication Mission to lead the Action Plan g. Other key Missions are:
1. Employment Generation Mission 2. Water Mission (NRM & Environment) 3. Education-For-All Mission
h. Department of Health, Medical and Family Welfare works in a Mission mode. i. Sectoral Strategies, Approach Papers and Action Plans drawn up.
• Convergence, Participatory process, Gender and other Equity issues become dominant themes 2. Poverty Eradication Action Plan linked to macro-economic policies, Planning and Budgetary processes.
• Public Investment Programme focusing on pro-poor growth 3. Reforms in various sectors and Juridical initiatives to strengthen Poverty Eradication Action Plan 4. 2003
Consolidation Process of Poverty Eradication Action Plan initiated: • Review of progress • Adoption of Plan Monitoring and Impact Assessment System • Establishment of Poverty Monitoring and Social Analysis Unit (PMASU) • Creation of Logical Framework for Action Plan and move to Project-based approaches • Disaggregated Poverty Analysis, better models for managing indicators and agreement of Intermediate
and Final Indicators • Processes for taking the plan forward as a true People’s plan through participatory tools.
KEY ELEMENTS OF THE CONSOLIDATION PROCESS
13 PSU-APRLP
In this context, it is important to bear in mind that AP’s human and other
resources have the potential for an economic surge similar to that of the
South East Asian Countries. The Poverty Eradication Action Plan is therefore
integrated with the State’s overall growth plan and stresses the following:
RAPID ECONOMIC GROWTH
• Human Capital Development
• Developing Social Capital of the poor
• Promoting Sustainable Livelihoods
• Focus on backward Mandals
ALONGSIDE, WE HAVE TO ENSURE
• More inclusive policy
• Access to assets and markets
• Public Investment Programme on Education, Health, Transport/
Infrastructures and Communications
• Initiatives targeting Insecurities and Vulnerabilities of the poor and
mechanisms for social protection
LINKING WITH GROWTH ENGINES
The expression “Pro-poor Growth” is being preferred to ‘Poverty Reduction’,
because it focuses on the key driver of Poverty Eradication. Growth- en-
hancing reforms matter a lot for Poverty Eradication, provided, of course,
that non-income dimensions of poverty are strongly reflected in policies,
strategies and actions.
A PRO-POOR GROWTH STRATEGY
REQUIRES, AMONG OTHERS
• Strong incentives for investment
(more capital per worker).
• Fostering trade and business link-
ages for faster transfer of knowl-
edge.
• Policies and investments for inter-
nal market integration.
The Janmabhoomi initiative has created a very powerful plat-
form and is a powerful leverage for all sectors in the Poverty
Eradication Strategy of AP. It provides a thematic setting for
convergence and the execution of the communication strategy
essential to the success of the Action Plan. Sectoral Action Plans
have to reflect how the Janmabhoomi Platform will be lever-
aged synergistically. Aligning on a common platform, along
with other elements of the Action Plan, will also address the criti-
cism of AP’s Poverty initiatives being fragmented and having
avoidable redundancies and duplications.
POVERTY ERADICATION ACTION PLAN II. KEY ELEMENTS OF THE CONSOLIDATION PROCESS
14 PSU-APRLP
• Increased external economic integration.
• More competitive agricultural markets.
• Reducing spatial disparities in Infrastructure (In this context, at the macro
plan level, it is worthwhile to relook policies on the manufacturing sector.)
From Garments and Leather products to Medicinal Herbs and Agro-services,
over 40 areas have been identified as pro-poor growth engines. In one way
or another, these areas also find a place in Vision 2020 as the engines of
GSDP growth. The Sectoral and Sub-sectoral Action Plans and the State-
wide Action Plan for Poverty Eradication have to now establish clear links
with these engines of growth. This will also facilitate positive responses in
embedding the Action Plan in the budgetary process.
LEVERAGING AND STRENGTHENING
SOCIAL CAPITAL
The growth of social networks in AP has been remarkable and the State has
succeeded in organising a range of groups based on needs and pro-
grammes, etc., which has led to accumulation of social capital. The State’s
move from an individual beneficiary approach to group based approaches
has been a key element of its Poverty Eradication Strategy and has pro-
moted collective action of the poor and augmented greater participation
and more bargaining power for access to developmental resources.
THE CONSOLIDATION PROCESS OF THE ACTION PLAN HAS TO ADDRESS THREE ISSUES IN THIS REGARD 1. The routing of development resources through groups has the attendant
risk of the very poor being excluded. However, the State has begun ad-
dressing these issues through DPIP, APRLP and APUSP initiatives. Sectoral
Action Plans could use the learnings of these initiatives and adapt their
practices for ensuring participation and coverage of the very poor.
2. Social Capital being a critical resource in Poverty Reduction Actions, the
Poverty Eradication Action Plan has to make provisions for investment in
social capital and incorporate, over time, indicators for monitoring social
capital along with other socio-economic parameters.
The growth of social
networks in AP has
been remarkable and
the State has succeeded
in organising a range of
groups based on needs
and programmes, etc.,
which has led to accu-
mulation of social capi-
tal.
POVERTY ERADICATION ACTION PLAN II. KEY ELEMENTS OF THE CONSOLIDATION PROCESS
15 PSU-APRLP
3. The Poverty Eradication Action Plan
in its consolidation needs to incorpo-
rate steps to maximize the potential of
Self-Help Group through:
a)) Training Needs Assessment based
on their productive and reproductive
workload.
b)) Leverage the SHG movement for
Capacity Building and consequent
strengthening of Social Capital
c) ) Utilize SHGs as a platform for sen-
sitization and action on gender and
other equity issues.
POVERTY MAPPING The most critical and important milestone in rural poverty reduction is to identify the target poor. In addition to the Govt. of India using the Participatory Poverty Assessment approach, Participatory Identification of Poor (PIP) was done. Tools like Transect Walk, Social Mapping, Vulnerabil-ity Analysis, Disability Mapping and Well Being Analysis were used to collect information and identify the poorest of the poor and the poor through community participation.
POOREST OF THE POOR
POOR
• Can eat when they get work, part of social support from the State.
• No shelter No proper clothing
• Cannot send chil-dren to school
• Cannot get credit
• Not possessing land • Can live on daily wages • School going children are sent
for work • Can get some credit • Not able to repay debts • No proper shelter • No respect in the society
20 km0 10
DPAP
APRLP Mandals
5
Railway
183
20
Other Mandals
50
National highwayState highway
Number of SHGsper habitation
N
Number of SHGs per habitationDec 2001
Spatial distribution of SHGs
POVERTY ERADICATION ACTION PLAN II. KEY ELEMENTS OF THE CONSOLIDATION PROCESS
16 PSU-APRLP
PARTICIPATORY IDENTIFICATION OF THE POOR (PIP) AS A PLANNING TOOL
PIP is emerging as the dependable tool not only for identifying the poorest of the
poor, but also the spatial distribution of concentrated poverty pockets. Plotting infor-
mation generated through PIP, using GIS tools and cross mapping it with information
on related indicators in health, education, etc., creates a Geographic Management
Information System on Poverty. This provides a critical Decision Support System to
AP’s two-track approach in poverty eradication, facilitating priority-based and fo-
cused action in chronic, high intensity poverty pockets.
The circled areas are pockets of ex-treme female literacy Poverty.
POVERTY ERADICATION ACTION PLAN II. KEY ELEMENTS OF THE CONSOLIDATION PROCESS
17 PSU-APRLP
18 PSU-APRLP
ORIENTING THE
CONSOLIDATION PROCESS
CHAPTER III
POLICIES FOR PRO-POOR GROWTH
It is observed that, the ability of the poor to earn higher incomes will depend
on three factors: (1) Growth factor: the production potential of the economy;
(2) The employment factor: that is, the extent to which potential growth en-
hances the employment potential. How the increased demand for labour gets
split up between the quality and quantity of employment depends on the na-
ture of the growth process that is employment intensive; (3) the integrability
factor: that is, the extent to which the working poor are able to integrate into
economic processes so that, when growth occurs and employment potential
expands, they can take advantage of such opportunities. If growth and em-
ployment opportunities are such that the capabilities they demand do not
match the capabilities of the poor, then either non-poor workers will seize the
opportunities or they won’t be seized at all. Lack of integrability may also
result from market failures, especially failure of the credit market, poor in-
frastructure, and lack of information.
ORIENTING THE CONSOLIDATION PROCESS
ENTERPRISE DEVELOPMENT AND NETWORKS
The Vision 2020 document of Andhra Pradesh states that around 18-20 million new jobs will have to
be created by 2020 in Andhra Pradesh to achieve its goals. Presently around 70 per cent of the
workers are dependent on agriculture. By the year 2020, only 35-40% of the workers are expected
to be dependent on agriculture in the state. It means that significant job opportunities need to be
created in other sectors of the economy in the state. Macro-economic (GSDP) growth emerges as the
foremost indicator of the success of our pro-poor growth strategy.
The micro-enterprise growth plan of the State has private stake holding built into the model as a
major influencer. The government shall encourage private-public sector partnership models, with the
aim of enhancing private investment. Efforts are under way to promote activities based on growth
engines and sub-sectors identified on the principle of comparative advantage. The network of SHGs
and their Federations are seen as a ‘potential producer’ as well as a ‘consumer’ of produce and the
SHGs have reached a stage where they are looking for new business propositions with their huge un-
utilised savings.
POVERTY ERADICATION ACTION PLAN III. ORIENTING THE CONSOLIDATION PROCESS
19 PSU-APRLP
Basically the pro-poor growth should be labour intensive. Economic growth is
necessary for Poverty Reduction. A pro-poor development Strategy requires
more than economic growth alone. The impact of growth on poverty depends
also on the character or pattern of growth. For growth to have the biggest
impact on poverty, policy makers need to complement macroeconomic and
adjustment policies with equity-enhancing sectoral and redistributive meas-
ures. These include policies to foster more agricultural development and
faster development of small and medium enterprises.
MONITORING & EVALUATION, REVIEW AND
MIDCOURSE CORRECTIONS The way Monitoring and Evaluation processes are incorporated in the Action
Plan will make all the difference to its effectiveness.
Through the PIP initiative of DPIP, AP has formalized the participatory
approach to poverty mapping. The question in the Action Plan process is to
see how PIP (Participatory Identification of Poor) can help us to use analyti-
cal tools in its context and take the Poverty Eradication agenda forward.
This has a synergy with how Social Capital can energise the agenda.
SELECTED GROWTH ENGINES
SEMI-SKILLED POPULATION/ILLITERATES
Sector Activity Sector Activity
Primary 1. Agro-processing and services 2. Vegetable cultivation, processing and
trading 3. Horticulture and floriculture 4. Sericulture 5. NTFP processing
Primary 1. Agricultural services 2. Agriculture extension 3. Input supply marketing 4. Produce marketing
Secon-dary
1. Handicrafts (including Handlooms) 2. Leather tanning and goods 3. Stoneware & ceramics 4. Cement & construction material
Secon-dary
Tertiary 1. Rural services 2. Paramedics and Paravets 3. Transportation 4. House-keeping
Tertiary 1. IT enabled services 2. Tourism and hospitality 3. Education and health care services 4. Business and financial services (including
micro-finance, micro-insurance etc.)
EDUCATED UNEMPLOYED
POVERTY ERADICATION ACTION PLAN III. ORIENTING THE CONSOLIDATION PROCESS
20 PSU-APRLP
The process of consolidating the Action Plan should enable us to re-
think the policy implications of PIP and social capital resources.
In terms of the structuring of the Action Plan, a critical implication of
this is for the Monitoring and Evaluation processes.
Currently, different initiatives, departments, etc., gather large
amounts of data from the community level which are archived without feed-
ing back into management decisions or policy.
The Action Plan has to address this by incorporating MIS nodes at all
critical interfaces and institutionalise feedback cycles that translate into Deci-
sion Support Systems at various levels, and also as a Policy Resource and
tool for midcourse corrections where required.
The M & E process incorporated into the Action Plan should have
clear-cut provisions for State-Level Reviews and be supplemented by work-
shops and other initiatives to realize the vision of a Learning Community.
The process will also respect that Poverty is not a static concept and
that participatory poverty mapping will alter indicators over time. The M &
E process should also be able to evaluate the performance of engines of
growth at the macro level vis-à-vis their impact on Poverty Reduction.
CONTINUITY, LEARNING, PROCESS
DOCUMENTATION Missions, Departments and Commissionerates are coordinated by various
Ministries. Processes have to be in place to ensure that the strategies and
Action Plan benefit from mechanisms for continuity in implementation. This
requirement in continuity also extends to the consolidation of individual and
collective learnings.
A key requirement in this area is Process Documentation. Process
documentation not only consolidates learnings in an experiential mode, but
also serves to reflect upon the how of things and communicate experiences
and best practices to other constituents / actors of the Poverty Eradication
Plan.
POVERTY ERADICATION ACTION PLAN III. ORIENTING THE CONSOLIDATION PROCESS
The M & E process in-
corporated into the Ac-
tion Plan should have
clear-cut provisions for
State-Level Reviews
and be supplemented
by workshops and other
initiatives to realize the
vision of a Learning
Community.
21 PSU-APRLP
Process documentation also translates the significance of their work to
all the personnel of Departments, Missions and Commissionerates, beyond
mere statistics, in a motivating fashion and in the context of the larger picture
spanning all sectors. The role of Process Documentation in implementing the
Action Plan has to be stressed and seen as different from Annual Reports /
Progress Reports.
PROGRAMME-PROJECT MODES AND ADDRESSING
REDUNDANCIES AND DUPLICATIONS
Chapter 2 (2.8) of the Draft Tenth Five-Year Plan of the Government of In-
dia mentions that “the rapid growth in the number of schemes also entailed
an undesirable build up of unproductive cost on administration and expendi-
ture”. Though it has been remarked that A.P. too has a significant amount of
redundancy/duplication in its Poverty Eradication Programme, programmes
such as the APRLP (Andhra Pradesh Rural Livelihoods Programme (APRLP)
and Andhra Pradesh Urban Services for the Poor (APUSP) have already be-
gun an alternative approach of joining ongoing programmes and bringing
to them extended scope, holistic agendas and also new and best practices,
apart from other resources.
The success of these experiences also hold yet another important
point for AP’s Poverty Eradication Action Plan. This is the need to implement
programmes in the Project Mode. This has critical value in optimising re-
sources, effective planning and better evolution of outcomes.
The broad heads discussed above are critical saliences and coordi-
nates which should guide the consolidation of the Poverty Eradication Action
Plan.
Process documentation
not only consolidates
learnings in an experi-
ential mode, but also
serves to reflect upon
the how of things and
communicate experi-
ences and best prac-
tices to other constitu-
ents / actors of the Pov-
erty Eradication Plan.
POVERTY ERADICATION ACTION PLAN III. ORIENTING THE CONSOLIDATION PROCESS
22 PSU-APRLP
POVERTY AND THE
ANDHRA PRADESH CONTEXT
CHAPTER IV
MACRO POLICY AND LEAD INSTITUTIONS
In order to give concrete shape to its poverty eradication approaches and to
realize the Vision 2020 goals, the State Government constituted a State
Level Poverty Eradication Mission (SPEM). The SPEM is a committee of
government officials and representatives from research institutes and civil
society, whose role is to coordinate and provide guidance on poverty
reduction efforts in the state.
The SPEM’s strategy paper in 2001 lists a broader set of measures to
reduce poverty, which include:
a. Generation of faster growth, especially in agriculture;
b. Promotion of health and education services;
c. Enhancing social capital through Self Help Groups (SHGs)
d. Promoting sustainable livelihoods of the poor;
e. Focusing on backward regions and poorer sections of the society; and
f. Improving the administrative machinery in order to improve the
delivery services for the poor and promote greater convergence of
social development and other poverty-focused programs in the state.
The State government has promoted the Society for Elimination of
Rural Poverty (SERP) to facilitate implementation of the strategies and
approaches by SPEM. The Velugu-I Project, known during its pilot phase as
the AP-District Poverty Initiative Programme (AP-DPIP), and currently known
as the Velugu-II or AP Rural Poverty Reduction Project (AP-RPRP), is
implemented by SERP, with special emphasis on empowerment of poor
through social mobilization and institutional building, capacity building and
research. It focuses on the very poor and communities not covered by
previous poverty reduction initiatives, and also acts as a forum of advocacy
for the formulation and implementation of pro-poor policies, plans and
programmes.
POVERTY AND THE ANDHRA PRADESH CONTEXT
POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
SERP focuses on the
very poor and
communities not
covered by previous
poverty reduction
initiatives, and also acts
as a forum of advocacy
for the formulation and
implementation of pro-
poor policies, plans and
programmes.
24 PSU-APRLP
While SERP focuses on rural poverty, needs of the urban poor are
specially catered for through the APUSP or the AP Urban Services for the
Poor project. The APUSP basically addresses urban poverty issues through
Slum Improvement Programmes (SIPs) in several towns and cities governed
by Municipal Corporations and Municipalities.
In addition to the above initiatives, poverty issues are also addressed
through the Water, Employment and Literacy Missions and the Dept. of
Health and Family Welfare.
The Andhra Pradesh Rural Livelihoods Programme (APRLP) under the
Water Mission is concentrating its efforts in the same locations developed
under the Drought Prone Area Programme (DPAP). The APRLP initiatives are
systematic in their approach with special emphasis on community
participation and empowerment to identify, design and implement livelihood
options.
IDENTIFYING THE POOR
The most critical and primary task before the state government and the
agencies entrusted with poverty eradication goals has been to identify the
areas that need attention, and the target communities or individuals who
need to be included in the designed programme. While the selection of
districts to plan and implement pro-poor initiatives is still mostly done on the
basis of SC / ST population concentrations, the selection of poor at the
community or household levels has undergone several positive transitions from
ad hoc identifications through baseline study approaches to Participatory
Poverty Appraisal (PPA).
DISTRICT PRIORITISATION
Poverty is a manifestation of several inter-related factors. During the early
days, district selection for poverty eradication programme implementation
was taken up more on the initiatives of an area representative on some
limited criteria or parameters. Later, with the definition of “Poverty Line”, the
selection of districts was based on the concentration of BPL (Below Poverty
Line) households generated from baseline surveys.
The selection of poor at
the community or
household levels has
undergone several
positive transitions from
ad hoc identifications
through baseline study
approaches to
Participatory Poverty
Appraisal (PPA).
POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
25 PSU-APRLP
However, with the process for below poverty level enumeration
always being under a grey cloud, the need to identify districts on a more
logical set of parameters or indicators became imperative. In line with the
approach proposed here, it may be logically assumed that the positive
development scenario in a better off district is due to a ripple phenomena
set off by the abundance of one or two resources.
A graphic analyses of data to demonstrate the relationship between impact
of development and backwardness is given below:
POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
26 PSU-APRLP
CLUSTERING OF DISTRICTS WITH THEIR SALIENT FEATURES
POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
27 PSU-APRLP
APRLP INNOVATIONS FOR AREA SELECTION
The Andhra Pradesh Rural Livelihoods Programme (APRLP) has adopted
innovative techniques to identify its priority Mandals. Focusing on watershed
development as the main canvas for its operations, APRLP has utilised the
Poverty Atlas, a Remote Sensing Database and a Socio-economic Database.
Since APRLP seeks to consider people’s livelihood situations in their entirety, it
has sought to integrate the indicators identified through the above-
mentioned sources and develop indices of Natural Resources Degradation and
Multiple Deprivations. The watershed analysis carried out by APSRAC
(Andhra Pradesh State Remote Sensing Applications Centre), giving the four
modified categories of Natural Resources Degradation, and the Multiple
Deprivation (also called social and material deprivation) categories are
given equal importance. When integrated, they generated sixteen
typologies (Box – 1). Prioritisation of areas to be selected was based on
these typologies, with areas categorised under typologies 1, 2, 3 and 4
receiving the highest priority in addition to areas which confirm to typologies
5, 9 and 13 as they have high poverty incidence irrespective of the natural
resource status. The process of area selection is further strengthened by the
use of nine-point selection criteria (Box – 2). Weightage is given to each of
these nine parameters based on marks allocated for different manifestations
of these parameters. The final selection of areas for implementation is also
supported through qualitative observations as a ground-truth verification
exercise.
Box – 1 : Deprivation Typologies Typologies 1 – 4 Very high NRM deprivation with high, medium moderate or low levels of poverty respectively Typologies 5 – 8 Medium NRM deprivation with high, medium moderate or low levels of poverty respectively Typologies 9 – 12 Moderate NRM deprivation with high, medium moderate or low levels of poverty respectively Typologies 13 – 16 Low NRM deprivation with high, medium moderate or low levels of poverty respectively
Box – 2 : 9 Point Selection Criteria for Selection of Micro Watershed Areas Adopted by APRLP • Percentage of small and marginal farmers • Percentage of SC / ST holdings • Percentage of women organised in SHGs and
participating in programme • Status of ground water • APSRAC prioritisation • Livestock population • No. of families affected / involved in migration • Contiguity of proposed • Availability of fallow / wasteland & CPR for the
poor to utilise usufruct
POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
APRLP seeks to
consider people’s
livelihood situations in
their entirety.
28 PSU-APRLP
THE AP-DPIP INITIATIVES
The AP-District Poverty
Initiative Programme (AP-
DPIP), in particular, has
extended beyond the scope of
GoI guidelines by adopting
the PIP approach in tandem
with the routine BPL survey
based on the 13 GoI
recommended indicators
(Box – 3). Separate BPL lists
are prepared using the BPL survey as well as the PIP process and the lists
are compared to shortlist the common households. While the disaggregated
information on these indicators is used for identifying the poorest of the poor
and the marginally poor sections of the community, aggregated information
from these indicators is used for policy formulation.
Using the Participatory Poverty Assessment approach, specifically the
PIP (Participatory Identification of the Poor) process, DPIP has adopted tools
like Transect Walk, Social Mapping, Vulnerability Mapping, Disability
Mapping and Well Being Analysis to gather the required information that
helps identify the poorer households. The PIP process is used with sufficient
care to ensure total community participation through preliminary rapport
establishment, informal meetings with key community members, community
meetings, sharing of information and involvement & approval of the village
panchayats. Till the 31st March, 2003, DPIP has managed to undertake PIP
exercises in 14, 585 villages spread across 792 Mandals in 16 Districts.
PRO-POOR GROWTH STRATEGIES UNDERLYING THE
ACTION PLAN
Andhra Pradesh undertook many reforms in the last seven years. They are:
fiscal reforms, power reforms, governance reforms and institutional reforms.
The objectives of these reforms are to step up economic growth and alleviate
poverty while protecting the environment. Reforms are underway in the
power and irrigation sectors for expanding their capacity by improving
efficiency and cost-recovery.
Box – 3 : Indicators for BPL Identification 1. Size of operational holding of land 2. Type of house 3. Average availability of normal wear clothing (per
person in pieces) 4. Food security 5. Sanitation 6. Ownership of consumer durables 7. Literacy status of the highest literate adult 8. Status of the household in labour force 9. Means of livelihood 10. Status of children (5-14 years) (Any child) 11. Type of indebtedness 12. Reasons for migration from household Preference
for assistance
POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
The PIP process is
used with sufficient
care to ensure total
community
participation through
preliminary rapport
establishment,
informal meetings
with key community
members, community
meetings, sharing of
information and
involvement &
approval of the
village panchayats.
29 PSU-APRLP
Significant strides have been made in respect of participatory
management of land, water and forest resources through the watershed
development committees, water user associations and joint forest
management. Women’s Self-Help Groups are a success story in the State
and have formed a central element in the Strategy for poverty eradication
through social mobilization, community empowerment and capacity building.
These reforms will yield significant results in course of time and will
facilitate realising the Goals of the Action Plan.
The reforms reflect the State’s strategies for achieving MDG’s by
2015 and eradicate poverty by 2020 through a focus on the following
policy areas:
ECONOMIC GROWTH
The distance between AP and all India and fast performing State’s widened
in the post-reform period on account of weak social and economic
infrastructure. Therefore, the State is increasing capital outlays substantially
to build up infrastructure.
AGRICULTURE
The experience of developing countries shows that agricultural growth is
considered as pro-poor because the majority of the poor are dependent on
this sector. Agriculture has been an area of strength for AP but has not
received adequate priority in the last two decades. At the aggregate level
for agriculture, the following policy issues are focuses for higher growth:
(a) Augmenting the investment in agriculture and rural infrastructure; (b)
Improving the quality and reach of technology dissemination, particularly in
rain-fed areas; (c) Re-examining the legal framework for land-leasing to
ensure adequate safeguard for both the tenants and the landowner, as this is
likely promote greater investment in agriculture; (d) Providing an
enabling environment to facilitate the farmers to benefit from the emerging
opportunities thrown up by the liberalization and globalisation;
Women’s self help
groups are a success
story in the State and
have formed a central
element in the Strategy
for poverty eradication
through social
mobilization, community
empowerment and
capacity building.
POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
30 PSU-APRLP
(e) Aggressively pursuing diversification in agriculture to optimise income and
employment (f) Focusing on non-farm employment opportunities, by
promoting appropriate agro-based processing industries; agro-based
processing industries; (g) Promoting rapid rural growth in drought-prone and
rainfed areas of the State. In these areas, horticulture, forestry and livestock
will play a larger role. Basically, this signifies high priority for irrigation,
agricultural research, especially in biotechnology focused on dry land
farming, extension services and ensuring access to institutional credit for
resource-poor farmers.
Vision 2020 document of the State of Andhra Pradesh has accorded prime importance for the devel-
opment of agriculture, targeting an overall growth rate of 5.7 per cent. Six major “growth engines”
have been identified for the sector (Watershed development, Agro services, Oilseeds, Vegetables,
Spices and Dairy). Strategies for development of agriculture feeds into three major missions viz. Wa-
ter Mission, Employment Mission as well as the Poverty Mission. Further the activities of eight govern-
ment departments are being coordinated under the popularly known programme Neeru–Meeru
(Water and You).
• Under a 10-year perspective watershed development plan from 1997 to 2007, it is aimed at de-
veloping 10 million ha wastelands.
• A rainwater harvesting space of 0.71 bcm (25 tmc) has been created, resulting in additional an-
nual groundwater recharge of about 6.09 bcm (215 tmc).
There is focus on community mobilisation and production enhancement through:
• Formation of 2 lakh Rythu Mitra User / Self-Help Groups.
• 1 million acres of land to be brought under horticulture with drip irrigation systems, further in-
creasing water use efficiency and reducing water demand, contributing to the objectives of Water
Mission.
• Productivity increase in Oilseeds is being pursued by the Technology Mission on Oilseeds, Pulses
and Maize.
• Livestock and rain-fed farming systems support each other very well. Feed and fodder, and the
relations between livestock and management of natural resources are addressed as being of cru-
cial importance for sustainable livestock production.
NATURAL RESOURCES MANAGEMENT (WATER MISSION)
POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
31 PSU-APRLP
Conservation of surface and groundwater has become imperative. This is
best achieved when water and power are priced according to the volume of
consumption. Involvement of rural communities is essential in setting user
charges as well as for assessing individual consumption.
INDUSTRY
Slow industrial growth has been an area of concern. Strengthening
infrastructure, such as, power, roads and ports, expansion of institutional
credit for small scale and rural industries, and good governance by cutting
down delays in giving clearances and reducing corruption stand out
prominently as areas of reform for attracting private investment domestic as
well as foreign.
INFORMATION TECHNOLOGY
There is thrust in policy framework in AP towards making IT an enabler in
development and equalizer of opportunities. With the spread of education
and decentralization of governance, IT can become a powerful tool in the
hands of the people at large for their socio-economic betterment and overall
empowerment.
LABOUR - INTENSIVE PATTERN OF GROWTH
One of the main elements of pro-poor growth is labour intensive pattern of
growth. In all the sectors (agriculture, industry and services), there is a focus
on increasing employment. Given the problem of unemployment for edu-
cated and unemployment and underemployment for the masses, twin strate-
gies for improving the livelihoods are developed. The first sub-strategy
aims at rural and urban masses that are illiterate/semi-literate, unskilled,
and semi-literate/skilled. The second sub-strategy addresses the problems of
educated unemployed. It will be on Selected Growth Engines and Clusters for
these two categories.
The current strategy of social mobilization for watershed develop-
ment aims to be sustained in the long run by making land use more remu-
nerative through new dry land technologies and the development of infra-
structure.
There is thrust in policy
framework in AP
towards making IT an
enabler in development
and equalizer of
opportunities.
POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
32 PSU-APRLP
POLICIES FOR FULFILLING TARGETS IN NON-INCOME
DIMENSIONS OF POVERTY
A. SOCIAL SECTOR EXPENDITURES
The trends in social sector expenditures in A.P is positive. The Social Sector, is
defined as the total of expenditure on ‘Social Services’ and ‘ Rural
Development’ as given in Central and State budgets. The head ‘Social
Services’ includes, among other things, education, health & family welfare,
water supply and sanitation. The expenditure under the head ‘Rural
Development’ (which is listed under ‘Economic Services’ in the budget
classification) relates mostly to anti-poverty programmes. A.P. spent around
6 to 11 per cent of its GSDP on the social sector in the last two decades. It
may be noted that the impact on the outcomes in social sector depends on
both expenditures and on the effective utilization of these expenditures.
B. EDUCATION
There are three issues that the State is addressing in improving literacy and
primary education in the State. First, is resources allocation to education
particularly to primary education from the budget. Second, the quality of
education in terms of curriculum, better infrastructure and improvement of
teaching. Third, retaining children in the schools which is more difficult than
enrolling them. The A.P. government has designed schemes such as
‘Mabadi’ (our school), ‘Chaduvkundam’ (back to school) and akshara sankranti
to improve access to children and women of disadvantaged communities.
Retaining of children in the schools needs intensive institutional arrangements
such as social mobilization of the community on child labour and education.
Such attempts are being made successfully at the micro level.
A.P. spent around 6 to
11 per cent of its GSDP
on the social sector in
the last two decades. It
may be noted that the
impact on the outcomes
in social sector depends
on both and the
effective utilization of
these expenditure.
POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
33 PSU-APRLP
C. HEALTH
Great stress has been placed on improving the major element of public healthcare, i.e. the
Primary Health Centres. Hospital Advisory Committees have been created and active public
healthcare system managements.
EDUCATION FOR ALL MISSION
Vision 2020 of Andhra Pradesh states that "Andhra Pradesh will not be just a literate society, but
a knowledge society capable of meeting the challenges posed by the 21st century. It will be a
state in which every person will be able to realise his or her full potential through access to edu-
cational opportunities regardless of the class or region to which he or she belongs".
To achieve the goals of Universalisation of Elementary Education (UEE) and Universalisation
of Adult Education (UAE), Government of A.P has constituted a State-level-Education-for-All
Mission.
The Mission’s objectives are:
• To review the existing situation in the state in regard to literacy.
• To identify areas of strength and critical areas of weakness.
• To review all ongoing programmes relating to universalisation of elementary educa-
tion and adult literacy in the state and suggest measures for coordinating, integrating
and strengthening them to achieve the best results.
• To suggest measures to control dropout rate, promote retention, and improve quality
at both primary and secondary levels in schools.
• To draw upon the best national and international practices in literacy and school edu-
cation identify new strategies and approaches to achieve the Vision 2020 objectives
in the state.
• To draw up a coordinated plan for promoting education among disadvantaged
groups, in particular girls, minority communities, SCs and STs, Girl Child in remote
tribal areas.
POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
34 PSU-APRLP
Public expenditure on the health sector is beng increased. It is not
enough to allocate more resources to the sector. The efficiency of public
spending is also being improved. More resources are being spent on
preventive care. Poor benefit more from this. Primary healthcare services
are being made accountable to the local communities. The share of private
sector in the total health care sector is high and has increased over time. One
cannot ignore, therefore, the role of private sector in the State. Efforts are on
to make the private sector accountable to the poor. The Government is
planning to promote institutions to regulate the private sector.
HEALTH (DEPT. OF HEALTH, MEDICAL AND FAMILY WELFARE)
AP’s Vision 2020 is succinct and challenging in the goals it sets for the health sector.
By 2020, the state aims at:
• Achieving health indicators of international standards / levels
• Stabilize population growth
To realize the Vision 2020 goals, AP’s health sector focuses on the following priorities:
1. Universal access to primary healthcare
2. Specific programmes to promote family welfare, particularly, the health of women and chil-dren and family planning.
3. Focusing on improving health status in disadvantaged groups and backward regions.
4. Ensuring a strong prevention focus
5. Enhance the reach and performance of the public health system.
6. Formulation of a state IEC (Information, Education and Communications) programme, including leveraging the electronic media. (Contributing to disease prevention, control, nutrition, sanita-tion, personal hygiene and fitness)
7. Free health care access (basic and specialized) for poor and vulnerable groups and health in-surance for other sections for access to these services.
8. Major diseases such as TB, malaria and HIV/AIDS to be contained and prevented.
9. Eliminate malnutrition.
Primary healthcare
services are being
made accountable to
the local communities.
POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
35 PSU-APRLP
The need to promote community health insurance schemes (e.g. SEWA’s
scheme) in order to provide health services at low cost to poor is a priority.
D. FOOD AND NUTRITION SECURITY PROGRAMMES
Major programmes that improve food and nutrition security are Public
Distribution system (PDS), Integrated Child Development Services (ICDS), and
Antyodaya Anna Yojana. PDS improves food security at household level
while ICDS helps in increasing nutrition of women and children. Antyodaya
Anna Yojana improves the food security of destitutes.
These programmes are being strengthened in order to reach the benefits to
the target population more effectively. In all the above pro-poor policies, the
special problems of disadvantage sections of SCs and STs are recognized.
URBAN POVERTY
Large -scale rural to urban migration of populations in search of more secure
livelihoods triggers urban poverty. Unskilled labour force living in
unorganised slums and working as manual labourers in construction jobs, as
domestic servants and as odd-job contract labour lead pathetic lives. While
some of these migrants reach urban settlements lured by the opportunities to
earn quick incomes, a large segment of rural to urban migrants are forced to
come to the urban areas due to severe drought conditions, causing loss of
livelihoods. In addition to causing high pressure on the planned civic
amenities, the migrants, especially the women and children, are exploited in
every conceivable way by vested interest groups. Unfortunately, there is a
lack of appropriate processes to measure and document the inflow of
migrants, whether seasonal or permanent.
Major programmes that
improve food and
nutrition security are
Public Distribution
system (PDS),
Integrated Child
Development Services
(ICDS), and Antyodaya
Anna Yojana.
POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
36 PSU-APRLP
Concerning identification of the urban poor, the APUSP project has also adopted similar procedures by gathering information on seven non-economic parameters. Each parameter consists of six attributes indicating the condition from ‘worst’ to ‘better’. Accordingly, weightage scores are assigned to each attribute, i.e. from ‘100’ (worst condition) to ‘0’ (better condition). Thus, a household scoring an average of 100 will be given top priority under the programme Plan.
Example of Household Rating for BPL Qualification by APUSP Parameter Attributes Score
1. Roof Asbestos 60 2. Floor Bajri 80 3. Water No water supply 100 4. Sanitation Community dry latrine 80 5. Education level Middle pass 60 6. Type of Employment Semi skilled 80 7. Status of Children in a House Working & attending 80
Literacy classes Sometimes
----------------- Total 540
----------------- Average weighted score for a household = 540 / 7 = 77.1 i.e., future beneficiary
POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
37 PSU-APRLP
MONITORING AND IMPACT ASSESSMENT
CHAPTER V
APPROACH TO THE PLAN
The last decade of the 20th Century has seen a visible shift in the focus of de-
velopment planning from the mere expansion of production of goods and
services, and the consequent growth of per capita income, to planning for en-
hancement of human well being. This approach is most succinctly captured in
the MDGs (millennium development goals) adopted by the United Nations in
its Millennium Declaration. Similar to MDGs, the Tenth Plan, for the first time,
sets monitorable targets for the Tenth Plan period (2002-07) and beyond.
Some of the major targets at the national level are: (1) Reduction in poverty
ratio by 5 percentage points by 2007 and 15 percentage points by 2012;
(2) Providing gainful and high-quality employment at least to the addition to
the labour force over the Tenth Plan period; (3) All children in school by
2003; all children to complete 5 years of schooling by 2007; (4) Reduction
in gender gap in literacy and wage rates by at least 50 per cent by 2007;
(5) Reduction of infant mortality rate (IMR) to 45 per 1000 live births by
2007 and to 28 by 2012; (6) Reduction of maternal mortality rate (MMR) to
2 per 1000 live births by 2007 and to 1 by 2012. The Vision 2020 docu-
ment of the GoAP reflects these goals.
Andhra Pradesh’s Poverty Reduction / Eradication Strategy and Action Plan
have emerged from this background.
The State has adopted a Plan Cycle Management Approach and created a
Logical Framework for its Poverty Reduction Action Plan.
MONITORING AND IMPACT ASSESSMENT
The State has adopted
a Plan Cycle Manage-
ment Approach and
created a Logical
Framework for its Pov-
erty Reduction Action
Plan.
39 PSU-APRLP
POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT
40 PSU-APRLP
INDICATORS OF POVERTY AND TARGETS
A baseline assessment of well being for A.P. that builds on the MDG’s, aug-
mented by the development goals of Vision 2020 as well as the national de-
velopment goals of the Tenth Five Year Plan has been done. Some of the in-
dicators that emerged through this process are given in the table below.
These serve as the intermediate indicators of the Action Plan Log Frame and
will be refined/replaced/augmented as the Draft Plan progresses towards
the Final Action Plan.
Development Goal Indicator Indicator in 2000 or closest year
AP:MDG 2015
Vision 2020 in 2020
Poverty and Nutrition Head count poverty ratio 21.6* 13.1 0
Under nutrition under age 5
37.7 24.6 Reduce malnutri-
tion
Child Labour 9.98 or 25 0
Universal primary education
Net enrolment ratio (primary)
90.3 99 100
Students reaching from grade 1 to grade 5
-- 95 90
Literacy rate (7+) 61.1 99
Reduce child
mortality
Infant mortality rate (per 1000 live births)
66 23.3 10
Under five mortality rate (per 1000 live births)
85.5 30.3 20
Improve maternal health
Maternal mortality ratio (per 100,000 live births)
154 75 --
Source: World Bank (2003) except head count ratio for 2000. * Deaton adjusted estimates.
POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT
Table: Selected Indicators and Targets for Andhra Pradesh
41 PSU-APRLP
MONITORING OUTCOMES AND INDICATORS
The log frame approach to the Poverty Reduction Action Plan is not a simplis-
tic force-fit of Goals, Targets and Indicators into prevailing formats of Logi-
cal Frameworks for development projects. It is rather, an adaptation of a
conceptual framework and enlarging its scope to encompass the complexities
of a Statewide Action Plan which subsumes sectoral Action Plans, District Ac-
tion Plans, Mandal Level Action Plans and community Level plans. It also pro-
vides for managing Intermediate Indicators in relation to targeted outcomes
across annual and other time horizons.
The Action Plan Log Frame, therefore, has features that go beyond a
conventional log frame and deploy management tools and strategies which
do not fall in the scope of standalone projects. Critical aspects, therefore,
include:
a) Combine the principles and best practices of Large Enterprise Man-
agement and Good governance.
b) A plan Cycle Management strategy that employs PERT/CPM Tools,
which make it possible to integrate sectoral, sub-sectoral and District
Plans into the Statewide plan.
c) Adapt develop Enterprise-wide tools specific to the state for Re-
source Planning, Management Information System and Forecasting.
d) Institutional Change Management and ‘Business Process Reengineer-
ing’ to ensure that the system is optimally geared to execute the Ac-
tion Plan.
These and other aspects of the plan emphasize the need to harness
universally valid management strategies and Tools with the clear understand-
ing that governance and the Development field are not isolated islands of
esoteric practices immune to management science. Equally much, the Log
Frame approach takes into account that the execution of the Action Plan itself
will alter the socio-economic realities it addresses.
A Statewide Action
Plan which subsumes
Sectoral Action Plans,
District Action Plans,
Mandal Level Action
Plans and Community
Level plans.
POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT
42 PSU-APRLP
The Action Plan, therefore, unfolds across a dynamic and complex en-
vironment, where changes in social structures, both desirable and dysfunc-
tional, have to be accounted for. In fact, given the complex social fabric of
the state, cultural factors and social change have to be part of the Action
Plan’s anchorages and references.
The State Wide Poverty Reduction Action Plan, in assonance with the
above, provides for sectoral plans, District plans, Mandal plans and Commu-
nity level plans to go beyond mere econometric modeling and incorporate
social capital and planned social change (Caste, gender and attitudes/
perceptions/practices in other areas which have a direct or indirect causal
relationship with poverty) as critical elements. This is especially so in the Com-
munity level, Mandal and District plans that emerge from and feedback into
the State Wide Poverty Reduction Action Plan.
The Log Frame approach to the Action Plan, in order to realize its
true potential, is complemented by a Plan Monitoring and Impact Assessment
System.
The Monitoring and Impact Assessment System of AP’s Poverty Reduc-
tion Action Plan assumes the following in common with its strategy and Log
Frame:
a) The Poverty Reduction Action Plan has to synergies with the overall
state plan and the Government of India’s Five Year Plans.
b) The Draft Action Plan has to become a “People’s Plan” in its final
form, through Participatory Processes.
c) It has to account for social change and social capital, however dif-
ficult these may be to monitor.
d) It has to be the key driver of the “bottom-up approach” to for-
mulate inclusive macro policies and planning for pro-poor growth.
It has to have, as an integral element, plan cycle management and
provide for two-way feedback cycles, spanning all MIS nodes of the Action
Plan dendogram, essential for midcourse correction.
POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT
The Log Frame ap-
proach to the Action
Plan, in order to realize
its true potential, is
complemented by a
Plan Monitoring and Im-
pact Assessment Sys-
tem.
43 PSU-APRLP
Although the main objective of the monitoring system is to trace the
progress in outcomes and impacts, both final (outcome and impact) and inter-
mediate indicators (input and output) are to be tracked. Monitoring final in-
dicators helps to judge progress toward the goals set. But final indicators are
the result of several factors, many of which are outside the control of policy
makers and programme administrators. Intermediate indicators, on the other
hand, generally change as a result of actions by the Government and other
agents. Moreover, final indicators generally change slowly over time while,
intermediate indicators change more rapidly, giving an indicators with which
is happening to some of its determinants.
Participatory Plan Monitoring and Impact Assessment is part of the
process of integrating stake holder participation not only in planning and im-
plementation but also in reviewing the progress of plan implementation and
evaluating outcomes. Such plan monitoring and Impact Assessment System will
facilitate Participatory Learning and Action (PLA) and becomes a Learning,
Capacity Building and Empowerment tool too.
In this context, it has to be noted that the Plan Monitoring and Impact
Assessment System (PMIAS) mooted in the Action Plan is a conceptual frame-
work which will have to be made concrete through further processes.
The conceptual framework for the PMIAS stresses the following.
· Going beyond monitoring inputs and outputs, to also focus on out-
comes.
· Incorporate the logical consequences of participation being a continu-
ous process and, therefore, the need to go beyond “snap shots” and
quantitative parameters.
Participatory Plan Moni-
toring and Impact As-
sessment is part of the
process of integrating
stakeholder participa-
tion not only in planning
and implementation but
also in reviewing the
progress of plan imple-
mentation and evaluat-
ing outcomes.
POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT
44 PSU-APRLP
• Identify mechanisms to assess the extent of facilitation by field staff for
community participation.
• Processes for data capture that translate the PMIAS also into a decision
support system and a key component of MIS at various levels.
The Action Plan addresses the multi-faceted nature of poverty, and
the scope for analyses it affords facilitates actions plans of missions, depart-
ments and districts, with step-by-step approaches to operationalization, ca-
pacity building needs assessment, focus of stakeholders role clarity and an-
nual plan to achieve short term targets based on intermediate indicators.
The PMIAS mooted in the Action Plan facilitates for primary stake-
holders a major stake in planning and implementation. The key tenet is that
communities must be empowered to take steps at their level and very poor
and other marginalized / resource poor sections have to be enabled to join
in the deliberations and negotiations. Participatory methodologies, stake-
holder role analysis, wealth / poverty ranking etc., create the spaces for this.
The PMIAS mooted in the Action Plan facilitates for primary stake-
holders a major stake in planning and implementation. The key tenet is that
communities must be empowered to take steps at their level and very poor
and other marginalized / resource poor sections have to be enabled to join
in the deliberations and negotiations. Participatory methodologies, stake-
holder role analysis, wealth / poverty ranking, etc., create the spaces for
this.
The Action Plan’s PMIAS also tries to correct the prevailing trend of
secondary stakeholders trying to gather information for decision making, and
in its place suggests primary stakeholder empowerment for planning imple-
mentation and monitoring through social audits.
The PMIAS mooted in
the Action Plan facili-
tates for primary stake-
holders a major stake in
planning and implemen-
tation. The key tenet is
that communities must
be empowered to take
steps at their level and
very poor and other
marginalized / resource
poor sections have to
be enabled to join in the
deliberations and nego-
tiations.
POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT
45 PSU-APRLP
The Community-level generation of information should be cross
checked through Random Audits at the District Level to ensure accuracy and
validate the processes. The Government and Secondary stakeholders have to
“Manage” the statewide Action Plan and its components by utilizing the
PMIAS.
In the AP Scenario, the Janmabhoomi initiatives create such capacities
and an enabling environment for primary stakeholder’s empowerment and
“People’s Planning”.
Sectoral lead actors and various departments and other constituents
of the Action Plan have to have six-monthly initiatives to consolidate learn-
ings through the PMIAS and from pilot initiatives and NGO initiatives to
benchmark best practices and introduce new practices. In tandem with Annual
Plans, departments have to undertake comprehensive reviews and introspec-
tions, and carry out Annual Random Evaluation of outcomes and processes.
T h e M I S
nodes sustained by
the PMIAs, spatial
planning and critical
evaluation of the
previous years plan
along projected ver-
sus actual outcomes
analysis, can enable
the next year’s plan
to be drawn up with
more insight.
VISION 2020 GOALS
ANDHRA PRADESH STATE
VISION 2020 GOALS
ANDHRA PRADESH STATE
PARTICIPATORY MONITORING IMPACT ASSESSMENT SYSTEM (PMIAS)
PARTICIPATORY MONITORING IMPACT ASSESSMENT SYSTEM (PMIAS)
FIVE YEAR STATEWIDE PLANFIVE YEAR STATEWIDE PLANFIVE YEAR STATEWIDE PLAN
FIVE YEAR TARGETS
INTERMEDIATE INDICATORS
MILLENIUM DEVELOPMENT
GOALS (MDG) 2015
MILLENIUM DEVELOPMENT
GOALS (MDG) 2015
ANNUAL PLANSANNUAL PLANSANNUAL PLANS
NEXT YEAR PLANSNEXT YEAR PLANSNEXT YEAR PLANS
TA
RG
ET
SFI
NA
L IN
DIC
AT
OR
S
COMMUNITY LEVEL PLANS & PMIAS
DEPARTMENTALDEPARTMENTALANNUAL PLAN ANNUAL PLAN
DISTRICT DISTRICT ANNUAL PLANANNUAL PLAN
MANDAL LEVEL PLANMANDAL LEVEL PLAN
SECTOR WIDE SECTOR WIDE ANNUAL PLANANNUAL PLAN
STATE WIDE ANNUAL PLANSTATE WIDE ANNUAL PLAN
In the AP Scenario, the
Janmabhoomi initiatives
create such capacities
and an enabling envi-
ronment for primary
stakeholder’s empower-
ment and “People’s
Planning”.
POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT
46 PSU-APRLP
The Poverty and Social Analysis and Monitoring Unit (PSAMU) will, in this
scheme, function as a macro-level integrate of PMIAS feedback cycles and
also analyze and monitor social change and social capital on institutional
linkages and the dependability and efficacy of MIS nodes at various levels.
POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT
47 PSU-APRLP
The PMIAS suggested by the Action Plan also helps manage indicators
through appropriate disaggregations at different levels. Aggregate state-
level indicators of the State-wide action plan can be effectively disaggre-
gated so that they become extremely sensitive to community-level and dis-
trict-specific contexts. Further, different sectoral plans will also be able to
disaggregate indicators (eg. by geographic areas, geo climatic zones, gen-
der, caste, etc.) and measure the functionality of its disaggregation type
through the PMIAS. A key feature of the PMIAS will be its ability to handle
qualitative and quantitative data and link data requirements to evaluation
methods.
OPERATIONALISING THE ACTION PLAN.
The Log Frame approach enables the Strategic Action Plan to be converted
to tactical and operational management, by following the steps of Project
Cycle Management. The macro-framework for strategic action plan provides
an overview of the PCM process. It suggests that at the four levels of plan-
ning, balancing loops provide the key intervention areas. The balancing and
reinforcing loops in the framework explain the dynamic nature of PCM. A
“big picture” is necessary to be understood for setting “lever” targets to
achieve the desired outcome at each level. The “levers” in the framework are
the critical points that can be adjusted for the desired outcome. The frame-
work also provides the dynamic linkages via loops to all other factors that
affect the targets and outcomes. The purpose of the strategic Action Plan is
then to identify the correct lever to adjust, by how much, and when, and to
assess or monitor whether the desired outcome is being obtained.
PROCESS DOCUMENTATION FOR STRENGTHENING
AND SUSTAINING THE ACTION PLAN
Reducing poverty requires multi-pronged action on various fronts and close
coordination between different departments. Effective implementation of the
PRAP will therefore require concerned departments to work closely and to
understand each others activities as partners. It also requires us to look at
outcomes, to understand processes and to revise them based on past
experience.
The purpose of the stra-
tegic Action Plan is then
to identify the correct
lever to adjust, by how
much, and when and to
assess or monitor
whether the desired
outcome is being ob-
tained.
POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT
48 PSU-APRLP
Current methods of documentation and existing monitoring and review
systems that are based on outputs are unlikely to support this. Reporting on
quantitative outputs does not allow us to reflect on mistakes made in the
past. Annual reports that provide figures on expenditure incurred over the
last financial year do not allow us to understand why the expenditure was
incurred, how effectively the money was spent and what lessons were learnt
in the process. To become wiser about the impact of actions and practices
requires us to carefully and systematically observe and reflect on key
processes, to consult others and learn how to steer them.
APRLP, a complex, multi-level programme, has initiated a process
documentation system to create information flow and allow for coordination
between different project levels and to learn from past experience. This
model has great relevance for AP’s Poverty Eradiation Action Plan (PEAP).
APRLP is documenting its processes at the grassroots level to provide
details of how project activities are being carried out to improve programme
effectiveness, increase adaptability to grassroots problems and to serve as
an authoritative source of reference for continuity, training, and
accountability. Learning from process documentation will also be used for
mainstreaming APRLP pilot initiatives effectively within the ongoing State
watershed programme.
Over a period of time such documentation provides a record of
exactly how the activity was conducted. Instead of residing in a few people’s
minds, details of important processes can now be accessed by anyone in the
project. Newly recruited persons can now have easy access to how activities
are to be performed, the quality of work expected from them and how they
can ensure this quality. When a person moves on from a post his/her efforts
can be acknowledged by successors in the form of processes put in place
and its merits and disadvantages and not just as quantitative outputs. Such
documentation will also make key actors/personnel involved with a plan,
programme or project accountable to the processes they are following.
Analysis of process documentation data is also being done to facilitate the
formulation of appropriate policy for more effective project/plan
management. Feedback from primary stakeholders about project/plan
activities
APRLP, a complex,
multi-level programme,
has initiated a process
documentation system
to create information
flow and allow for
coordination between
different project levels
and to learn from past
experience. This model
has great relevance for
AP’s PEAP.
POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT
49 PSU-APRLP
can now reach managers periodically. Instead of simply knowing quantitative
information about outputs- such as amount of Revolving Fund disbursed-
managers can now know more about actual outcomes, such as how far poor
persons have benefited and critical parameters in the process that are
required to achieve desired outcomes.
ANALYSIS FRAMEWORK FOR THE PEAP LOG FRAMES
Sustainable development being the foundation of any Poverty Eradication
Strategy, a Poverty Eradication Action Plan (PEAP) has to identify the link-
ages between key components of sustainable development and their inter-
faces with governmental and administrative structures and macro economic
determinants.
A basic premise of AP’s Poverty Eradication Action Plan is that it
should be tailored to the specific context of the State. This means working
within the advantages, synergies and boundaries of being a large state
within a large nation state. Agreeing on goals, targets and indicators
through participative processes requires a clear understanding of the
“Capital” available to address poverty reduction.
The log frame for AP’s Poverty Eradication Action Plan, therefore,
centres on the “Five Capitals” essential for sustainable development and also
“Political Capital” and builds
on their linkages.
The interrelationship/ link-
ages of each of these capi-
tals is taken into account by
each mission/ sector and ad-
dressed in terms of strengths
and vulnerabilities specific to
the sector/ mission. The action
plan log frame will also re-
flect the interfacing of these
capitals with policy, institu-
tions and processes.
The log frame for AP’s
Poverty Eradication Ac-
tion Plan, therefore,
centres on the “Five
Capitals” essential for
sustainable develop-
ment and also “Political
Capital” and builds on
their linkages.
POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT
50 PSU-APRLP
EVOLVING ACTION PLAN
LOG FRAMES
CHAPTER VI
As has been repeatedly emphasized, based on Vision 2020, all concerned
Missions and Departments in the State have drawn up strategies and action
plans. However, these strategies and action plans have to be integrated into
the State Wide Poverty Eradication Action Plan of SPEM in ways that facili-
tate good plan cycle management, appropriate macro policies and reforms
and participatory processes.
The Logical Frame work approach is a powerful tool to achieve this. It
demands step-by-step action on the part of Missions in drawing up sectoral
plans in conjunction with Departmental and Commissionerate plans.
In this process, it is useful to begin translating sectoral and departmental
strategies into policy matrices as a preliminary step to converting Action
Plans into Logical Framework formats.
Log Frames of Action Plans have to incorporate the following
components
• Identify final goals and outcomes against a timeline (in the case of AP, it
is Present to 2020)
• Identify milestone targets along the way to final goals (AP uses the GoI’s
Five Year Plan targets and their time-frames, as well as Millennium
Development goals with its milestone date of 2015)
• For each goal, identify strategies
• Elaborate action required to implement strategy.
• Identify lead actors and joint actors, and their linkages for each action
planned.
• Identify internal and external resources required at critical milestones
along the timeline.
• Identify current perceptions on internal and external enablers and
thwarters.
EVOLVING ACTION PLAN LOG FRAMES
The Logical Frame work
approach is a powerful
tool to achieve this. It
demands step-by-step
action on the part of
Missions in drawing up
sectoral plans in
conjunction with
Departmental and
Commissionerate plans.
52 PSU-APRLP
• Identify reforms required and impact of ongoing reforms
• Suggest juridical initiatives that are desirable
• Identify time horizons for review and midcourse corrections (AP has
Annual reviews, Five-yearly reviews coinciding with GoI’s Five Year Plans
and macro level review in 2015 on MDG indicators
The most critical component is Indicators. The use of Intermediate Input/
Output Indicators and Final Indicators and a strategic model for managing
indicators at the micro, meso and macro level are discussed elsewhere in this
document.
TAKING FORWARD THE LOG FRAME PROCESS
While drawing up the Log Frame of the Action Plan’s of SPEM, Missions and
Departments, it has to be kept in mind that they will be revised and refined
over a specified period, through participatory processes and shall be struc-
tured to reflect community- level, mandal-level and district- level planning
processes. They shall also provide for the two track approach of intense and
priority action in acute poverty pockets and regular state wide activity.
Through this participatory revision and refinement process of the sectoral and
departmental plans, mechanisms shall also be identified for annual reviews
at all levels of the plan implementation, right down to the community level,
and reliable feedback based on that in drawing up the next year’s plans.
The State Wide Action Plan of SPEM in a Log Frame format will also enable
the Cabinet, Finance Department and Planning Department to undertake
‘Sensitivity Analysis’ of the plan, keeping in view various externalities that
are likely to affect the plan context and plan appropriate ‘Coping Strate-
gies’.
Similarly, the effective use of Indicators on which there is overall agreement among all stakeholders, also facilitates tracking and monitoring the plan in a Log Frame mode.
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
While drawing up the
Log Frame of the Action
Plans of SPEM, Missions
and Departments, it has
to be kept in mind that
they will be revised and
refined over a specified
period, through partici-
patory processes and
shall be structured to
reflect community -
level, mandal - level
and district - level plan-
ning processes.
53 PSU-APRLP
Though the main objective of the PMIAS is to track progress in poverty reduc-
tion and impact of activities, it is also important to track indicators.
In order to do this, all stakeholders should have clarity of Intermediate Input
and Output Indicators and Final Outcome and Impact Indicators. Monitoring
final indicators helps assess progress towards the goals of the plan. How-
ever, final indicators are the result of several factors, many of which are out-
side the control of policymakers and plan managers. Intermediate Indicators,
as this document repeatedly stresses, change more rapidly in comparison
with final indicators which change slowly over time.
Therefore, tracking intermediate indicators is critical in making midcourse cor-
rections while the plan is underway. Not only is it more easy to collect infor-
mation on intermediate indicators, they are also extremely useful in plan
cycle management, especially when they refer to key impact outcome deter-
minants and/or when they vary across areas or groups overtime. This is es-
pecially important to a plan such as AP’s which is built on disaggregated
poverty analysis and spatial distribution modelling.
In this context, it has to be observed that part of the consensual/
participatory decisions required in the consolidation process is that of the
level of disaggregation of indicators, which is as important as the choice of
indicators. In the case of AP’s plan, this has to be done bearing in mind the
two track approach. Sub-projects within the plan to address acute poverty
pockets.
The section on managing indicators has already discussed the use of aggre-
gate State Level Indicators for gaining a bird’s eye view at the macro policy
level, and the need for progressive disaggregation of indicators at various
levels of implementation of the plan.
GETTING THE RIGHT PERSPECTIVE ON LOG FRAMES
Apart from the complexity of the processes outlined for translating strategies
and Action Plans into the Log Frame format, Missions and Departments also
have to note the supplementary tasks required with a Log Frame approach.
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
Tracking intermediate
indicators is critical in
making midcourse cor-
rections while the plan
is underway.
54 PSU-APRLP
Log frame approach is not a hold all solution. It has its strengthen and limita-
tions which need to be addressed.
Log Frame Strengths
• Facilitates good plan design
• Addresses past weaknesses in plan design
• Easy tool to learn and use
• Missions, Departments, District Authorities can use it internally for design
and appraisal processes.
• Can equally be used externally with consultants.
• Can anticipate plan implementation requirements across the plan timeline
• Provides a framework for plan evaluation
Log Frame Limitations
• Log Frames are not a substitute for other technical, economic, social and
environmental analysis.
• Overemphasizing objectives and externalities specified during design
can bring rigidity in plan management
• Log Frame approach requires a team building and convergence process
with good leadership at all levels, and focus on skill building.
Against the background of the strengths and limitations of the log
frame approach, there has to be a focus on preliminary activities before
evolving log frames and also supplementary analysis, modelling and initia-
tives.
We have already mentioned the need for sectoral and departmental
policy matrices. Similarly, analysis of institutional arrangements, resource
flow charts, and various overviews and analysis are essential for clarifying
components of the plan and achieving role clarity among all stakeholders.
Such analysis is also critical from the point of view that building capacity for
implementing the plan is not viable without having achieved role clarity
among lead actors, joint actors and other stakeholders.
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
Analysis of institutional
arrangements, resource
flow charts, and various
overviews and analysis
are essential for clarify-
ing components of the
plan and achieving role
clarity among all stake-
holders
55 PSU-APRLP
The following is an example of such an analysis in graphic form. Prepared
by the PSU as background work on the present document, it presents the Ag-
riculture and Livestock strategies which are part of the Water Missions Sec-
toral Plans, and feed into the Poverty Eradication Action Plan of SPEM.
Sample of graphic analysis required to supplement Log Frames
Consortium Approach
(for convergence)
Research Institutions
Line
Departments
Development agen-cies
User Group Formation
Awareness Creation
Social Mobilization
Pro-Poor strategies in Agriculture and Livestock
Crop diversification towards less water demanding crops
Watershed activities
Poverty Mission Objectives
Water Mission Objectives
Reduction in Poverty Regeneration of CPR
More fodder availability
Better live-stock quality
Soil Fertility Manage-
ment
Reduction in Soil Erosion NTFP
Increase in Rural income More Water Availability
Creation of better quality rural employment
Creation of rural infrastructure includ-
ing marketing
Better use of irrigation water
Surplus for processing and value addition Increase in Agricultural
productivity and im-proved post harvest proc-
essing
Capacity Building of user groups and autonomous scaling up
Input suppliers
Strengthening user groups
Better Water Harvesting
Increase in Rural Income
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
56 PSU-APRLP
D I S T R I B U T I O N O F M A N D A L S T O T O T A L L I T E R A C Y R A T E S ( 1 9 9 1 - 2 0 0 1 )
0
100
200
300
400
5000-10
10-20
20-30
30-40
40-50
50-60
60-70
70-80
80-90
90-100
1991
2001
D I S T R I B U T I O N O F M A N D A L S T O M A L E L I T E R A C Y R A T E S ( 1 9 9 1 - 2 0 0 1 )
0
100
200
300
400
5000-10
10-20
20-30
30-40
40-50
50-60
60-70
70-80
80-90
90-100
1991
2001
D I S T R I B U T I O N O F M A N D A L S T O F E M A L E L I T E R A C Y R A T E S ( 1 9 9 1 - 2 0 0 1 )
0
100
200
300
400
5000-10
10-20
20-30
30-40
40-50
50-60
60-70
70-80
80-90
90-100
1991
2001
Example of Spatial analysis for the Two-Track
Approach — Mahabubnagar – A high priority district
The progress has been uneven across the state; there is
major variation across districts, with literacy rates ranging
from 29.6 to 71.52 per cent in 1991 and 45.53 to 79.04
in 2001. There is a correlation between poverty indices
and illiteracy, as can be seen from the graphs. The districts
in the western part suffer both with poverty and low
literacy. This has implications for social development and
the outcome of development interventions.
The Mahbubnagar district is an extreme case, with a
very low level of educational performance. For example,
the district has a high dropout rate when compared to the
rest of the State (the District is 59.5 as against 34.5 for the
state). Further, the dropout rate is higher in the mandals
located in the western and eastern part of the district.
Traditionally, these are dry areas with high reliance on
migration. Another factor that concerns us is high variation
in drop out rate of SC children (65.8 against 41.3 for the
state), ST (80.8 as against 62.6 for the state) and girls.
Drop out rate is less in urban pockets and irrigated areas.
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
57 PSU-APRLP
BASELINE ANALYSIS
Policy matrices and the identification of goals have to have baseline studies
and analysis as their point of departure. The current context has to be under-
stood and All-India and India best figures compared with AP’s figures. The
process also leads to benchmarking on various aspects of the plan, especially
on goals and indicators. The following Tables present analysis in this direction
done by the PSU and also sourced from other studies. These are examples to
guide preparatory work to log frames by Missions and Departments.
Examples of comparative analysis of data:
S.No Developmental Parameters India Pre-sent
UMI Ref-erence
for India 2020
AP Pre-sent
Vision AP 2020
Remarks
1 Poverty as % of population below poverty line 26.00 13.00 15.80 0.00
2 Income distribution (gini index 100 = equality) 37.80 48.50
3 Unemployment rate % 7.30 6.80 6.70
4 Male adult literacy rate (%) 68.00 96.00 71.40 100.00
5 Females adult literacy rate (%) 44.00 94.00 51.50 100.00
6 Net primary school enrolment ratio 77.20 99.90 90.30 100.00
7 Public expenditure on education as % GNP 3.20 4.90 1.80
8 Life expectancy at birth in years 64.00 69.00 64.00 70.60
9 Infant mortality rate per 1000 live births 71.00 22.50 66.00 10.00
10 Child malnutrition as % of children under 5 years based on weight for age
45.00 8.00 37.70 Reduces to minimum
11 Public expenditure on health as % GNP 0.80 3.40 1.00
12 Commercial energy consumption per capita (kg of oil equiv.) 486.00 2002.00
13 Electric power consumption per capita (kwh) 384.00 2460.00 281.40
14 Telephones per 1000 population 34.00 203.00 29.40
15 Personal computers per 1000 population 3.30 52.30
16 Scientists & engineers in R & D per million population 149.00 590.00
17 Sectoral Composition of GDP in %
a. Agriculture 28.00 6.00 33.00 12.00
b. Industry 26.00 34.00 18.10 21.00
c. Services 46.00 60.00 49.00 67.00
18 International trade in goods as % of ppp GDP 3.60 35.00 All India
19 Foreign direct investment as % of gross capital formation 2.10 24.50 All India
20 Gross FDI as % of ppp GDP 0.10 3.50 All India
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
58 PSU-APRLP
Evaluation of Baseline data vis-à-vis MDGs and targets (Maria Louisa Ferreira 2003) Select Target and Indictors for AP:
Goal Indicator In-
cluded in
2000 indi-cator
or closest year
10th Plan 2007
10th Plan 2012
Vision 2020
(2010)
World BDG
(2015)
AP MDG
(2015)
Vision 2020
in 2020
Eradicate extreme poverty and hunger (Nutrition)
Under weight children under five years
MDG 37.7 24.6
Re-duce inci-dence of malnu-trition
Consumption of iodised salt Vision 2020 27.4 100%
Reduce Child Mortality
Under five mortality (per 1000 live births) MDG 85.5 26 30.3 20
Infant mortality (per 1000 lives births) MDG
Plan 66 45 28 20 23.3 10
Proportion of 1 year old children immunized against measles (%) MDG 56 100
Improve maternal health
Maternal Mortality Ratio (per 100,000 live births) MDG
plan 154 200 100 75
Proportion of births attended by skilled health personnel (%) MDG
Vision 2020
67.9 80 80 100
Fertility Rate V 2020 2.25 1.15
Proportion of women getting pregnant under the age of 21 years V 2020 37.3
Proportion of women using ante-natal care V 2020 89.7 100
Space between births V 2020 3
C o m b a t H IV/A IDS , malaria and other dis-eases
Contraceptive prevalence rate
MDG 0.6
Prevalence of death rates associ-ated with tuberculosis MDG 592
Proportion of TB cases detected and cured under DOTS MDG 0.45
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
59 PSU-APRLP
FIRST STAGE SAMPLES OF LOG FRAMES
The Log Frame of the State Wide Poverty Eradication Action Plan will include
all the MDG’s, Tenth Five Year Plan targets and Vision 2020 Goals, and re-
flect various sectoral and departmental Action Plans in analyzing risks, as-
sumptions and concerns. The Log Frame also indicates cross-sectoral depend-
encies and external and internal factors. The following are examples of the
matrices used for the purpose.
The sectoral and departmental Action Plans drawn up based on Vision 2020
Goals now need to be integrated with the Log Frame of the Action Plan of
the State Poverty Eradication Mission. The following are first stage examples
of sectoral Log Frame/Policy Matrix structures and are intended to only
guide Missions and Departments in evolving full scale Action Plan Log
Frames.
Final Outcome Indicators Intermediate indicators
Input-output activities/ strategies
Concerns
1. Poverty gap ratio
2. Proportion of population below $1 per
day
3. Share of poorest quintile in national con-
sumption
4. Prevalence of underweight of under 5s
5. Proportion of population below minimum
level dietary energy consumption
Productive
asset owner-
ship (land,
cattle and/
or other
physical
capital)
Well defined
safety net
programmes,
specific focus
on developing
disadvan-
taged groups
Need for
strengthening
area focused
approach
Weak link-
ages with so-
cial capital
Area Poverty and Equality From: MDG / IDG
Goal Reduce extreme poverty by half by 2015 Halve proportion of people suffering from hunger by 2015
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
The Log Frame also in-
dicates cross-sectoral
dependencies and ex-
ternal and internal fac-
tors.
60 PSU-APRLP
Area : Education From: MDG / IDG
Intermediate indicators Input-
output ac-
tivities/
strategies
Concerns
1.Ratio of literate female to males
2.Ratio of girls to boys in primary,
secondary & tertiary education
3.Female illiteracy rate
4.Proportion of seats held by
women in national parliament
1.Girls reaching grade 5
(cohort)
2.Girls school life expectancy
3.Repetition rates (by level of
schooling and gender)
4.Female control over earnings
Final Outcome Indicators
Final Outcome Indica-
tors Intermediate in-
dicators Input-output activities/ strategies Concerns 1. Net en-
rolment
ratio in
pri-
mary
educa-
tion
2. Propor-
tion of
pupils
com-
pleting
grade
4
(cohort)
1. % children 5-9
attending
school
2. % children ap-
pearing for
class VII exam
3. % Children
qualifying in
VII exam
4. Literacy rate
of 15-35
5. Teacher to pu-
pil ratio
6. Adult average
age of school-
ing
1. Classification of children in five categories
and developing strategies for each,
2. Focus on female literacy, special pro-
grammes to eradicate child labour,
3. Promotion of specific schemes for encourag-
ing enrolment in schools,
4. Focus on disadvantaged groups and loca-
tion,
5. promotion strategies for full enrolment in
primary education s
6. Classification of children in different age/
class groups
7. Focus on reduction in drop out and increase
retention through education volunteers at
primary school level
1. Skewed
availability
of schools
and teach-
ers
2. Involvement
of commu-
nity through
school edu-
cation com-
mittees and
panchayat
education
committees
Area Education From: MDG / IDG Goal Universal Primary Education by 2015
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
61 PSU-APRLP
Area : Health
Final Outcome
Indicators
Intermediate indicators Input-output activities/ strategies Concerns
1. Infant mortality
rate
2. Under 5 mor-
tality rate
3. Life expec-
tancy at birth
4. Low birth-
weight babies
(% of births)
5. Children un-
derweight (%)
6. Prevalence of
anaemia
7. Children with-
out respiratory
infection (%)
8. Children
stunted (%)
1. Immunization of children
(%) (measles, DPT3, all,
none)
2. Vitamin A supplementa-
tion for children
3. Treatment of diarrhoea
in children (%)
4. Treatment of ARI in
children (%)
5. Universalisation of PHC
care
6. Increasing Institutional
delivery / skilled birth
attendant
7. Ensure 3 post natal visits
within 1st week after
delivery
8. Reduction in incidence
of low birth weight ba-
bies
9. Elimination of death due
to natal tetanus.
1. Fixed day clinics at village by
ANM
2. Janani team (sarpanch, youth
rep, mother, anganwadi worker
3. Fixed dates throughout the coun-
try - National campaign
4. Communication for home-based
care and improving knowledge
on new born care.
5. Home available fluid, ORS
6. Communication on early detec-
tion & treatment (ANM/MO) &
management of sick newborns.
7. AP: Round the clock (RTCPHC);
Extra support to keep RTCPHC
open
8. Provision for gyn/ped services
once a week
1.Drop out of
measles
2.Community
ownership of
Janani com-
mittee
3.Strong supply
side
4.High NNMR
rate
5.Plateauing of
IMR
6.Low accep-
tance among
community
7.Training of
ANM on safe
delivery, new
born care
and prompt
referral.
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
62 PSU-APRLP
Goal : Improving Child Health
Final
Out-
come
Indica-
tors
Inter-
mediat
e indi-
cators
Input-output activi-
ties/ strategies
Concerns
1. Reduction in the in-
cidence of diar-
rhoeal deaths by
75% & episodes of
diarrhoea by 50%
2. Reduction in acute
respiratory infec-
tion death by 75%
3. Universal immuni-
zation of children
Eradication of po-
lio (by 2005)
4. Elimination of mea-
sles deaths
5. Reduce incidence
of malaria among
children
1. Home management of diarrhoea and ARI
2. Improve mother's knowledge on when to seek
referral of sick children
3. Ensure availability of ORS Improve skills of
ANM in identifying signs of dehydration and
pneumonia and prompt referral E
4. Early case detection and promote treatment
of malaria
5. Posting of pediatrician at sub-district level
(CHCs / Area Hospitals)
6. Promote personal hygiene (hand washing)
among household members, promote birth
spacing
7. Immunization
8. Nutrition
• Tribal and Backward areas: Networking with NGOs working in these areas and continued train-ing of the community health workers in tribal areas with special focus on malaria, epidemic man-agement and safe delivery
• Strengthen the MIS through computerization of data • Download MPHS data and cleanse it for use by ANMs • Generate output using personal digital assistant with ANMs or computer at PHCs • Systems study & development of software for computerization of PHCs, DM&HO offices, Com-
missioner of Family Welfare & DH office • Strengthen the functioning of community advisory boards / community based structure to partici-
pate in planning processes and monitor services provided • Mobilize community based groups for various IEC activities including government incentives avail-
able • Strengthen SHG to create corpus funds for emergency situations
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
63 PSU-APRLP
Area : Health From MDG
Final Out-come Indica-
tors
Intermediate indicators Input-output activities/ strategies Concerns
1. Maternal
morta l i ty
ratio
2. Proportion
of births
at tended
by skilled
h e a l t h
personnel
1. I n s t i t u -
tional de-
livery
2. F a m i l y
p l a n n i n g
operations
3. Spacing
4. Use of
m o d e r n
contracep-
tives (%)
5. Age at
birth of
first child
6. % o f
women re-
c e i v i n g
C o m p r e -
hensive an-
t e n a t a l
care
7. Nutrition
1. Strong policy; analysis of infra-
structure availability key to
achieve; financial support pro-
vided through formal policy and
budget support
2. 3 years gap between birth,
strong awareness campaigns ac-
cess to multiple methods of con-
traceptives, strong monitoring
3. Increase age of marriage from
18 -21 years, workshops for
adolescent girls, mothers, sar-
panches.
4. Focus on role of ANMs is critical
link; Para workers in critical
(tribal and backward) areas.
5. National maternity benefit
scheme
6. 3 visits to institutional checkups
which includes nutritional coun-
seling
7. IEC through community advisory
boards or other community
based structures on birth pre-
paredness and complication
readiness
1. Mobility in time of
urgency;
2. Analysis of access
mandal- wise;
3. Focus on low access
mandals;
4. Availability of SHGs
in focus area; special
monitoring in focus
area
5. Very strong data-
base analysis and to
be upgraded very
regularly
6. Availability of Gy-
naecologist
7. Critical linkage with
ICDS
8. Increase institutional
deliveries Skilled at-
tendance at birth for
all domiciliary deliv-
eries
9. Increase in accessibil-
ity to quality services
for medical termina-
tion of pregnancies
(including strict im-
p lementat ion of
PNDT Act) and for
treatment of RTI/STI
and prevention of
Goal : Reduce maternal mortality ratio by 3/4th by 2015
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
64 PSU-APRLP
Area : Environmental Sustainability From MDG
Goal : Halve proportion of people without sustainable access to safe drinking water by 2015
Final Outcome Indicators
Inter-mediate
indi-cators
Input-output activities/ strategies Con-cerns
1. Proportion of population
with sustainable access to
an improved water source
1. Water User's Association and Participatory
Hydrological Management of irrigation
sources.
2. Water Mission to facilitate assured Drinking
Water to communities.
3. Water and sanitation cover to be demand
driven as community owned and maintained.
1. Proportion of population
with access to improved
sanitation
2. Proportion of population
with access to secure ten-
ure (urban/rural disaggre-
gation
1. Rural Sanitation is given priority in Janmab-
hoomi and individuals as members of SHGs are
being covered in the proposal.
Goal : A significant improvement in lives of at least 100 million slum dwellers
Area : Environmental Sustainability From MDG Goal : Integrate principles of sustainable development into country policies and program and reverse the loss of environmental resources
1. Change in land area cov-
ered by forest
2. Land area protected to
maintain biological diver-
sity
3. GDP per under of energy
use
4. Carbon dioxide emissions
per capita
1. Strong policy for conservation and protection of
forest areas. Joint forest management with com-
munity participation and saturation of fringe ar-
eas.
2. A 10 year action plan to saturate waste lands
including forest lands.
3. Rural electricity coverage to 100% habitations.
4. Minimum assured electricity supply for agricul-
ture purpose.
5. LPG assurance to women SHGs in rural and
urban areas
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
65 PSU-APRLP
Area : Macro economic stability From MDG
Final Outcome Indi-
cators
Interme-
diate in-
dicators
Input-output activities/ strategies Concerns
1.Unemployment rate
of 15-24 years
2.Per capita economic
growth rate
3. U n e m -
ployment
4. Inflation
5. Exchange
rate fluc-
tuation
6. F i s c a l
deficit
Increase availability of skilled man-
power by
1. Establishing more technical insti-
tutions
2. Enhancing capacity of existing
institutes
3. Promotion of TTDC as a nodal
agency to integrate all trginings
(through networking),
4. Promotion of cluster develop-
ment approach
5. Focus on identified growth en-
gines
6. creating employment genera-
tion opportunities for SHG (6)
Promotion of special corpora-
tions to focus on specified target
groups
Linkages & conver-
gence among depts.
and Missions
1.Common platform
for focused interac-
tions
2.C o m b i n e d /
integrated data
c o l l e c t i o n /
association
3.Taking SHG to
higher level of em-
ployment, Promo-
tion/strengthening
of micro-markets
4.Effective /fast
credit support
1.Food consumption
variability
2.Income variability
3.Malnutrition preva-
lence
4.Death rates due to
violence
1.U n e m -
ployment
rate
2.Variabil-
ity in
produc-
tion of
chief sta-
ple s
•
Area : Security From: IDG
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
66 PSU-APRLP
Objectives Intermediate outputs Indicators Final Out-
puts Increased
synergy in
the activities
of the differ-
ent stake-
holders of
Rural Devel-
opment in
Andhra
Pradesh.
Increased number of multi
disciplinary networks,
comprising line depart-
ments, development
agencies, research insti-
tutes, development pro-
jects etc addressing spe-
cific issues of farming sys-
tem through to Consor-
tium approach
Increased number of
farming system pro-
grammes where NGOs,
farmer groups and Gov-
ernment closely cooper-
ate and complement
each other’s roles
All seven Water User De-
partments develop effec-
tive coordination mecha-
nisms in order to effi-
ciently utilize available
water
The respective depart-
ments of growth engines
devise strategies in order
to exploit the compara-
tive advantage and in-
crease rural employment
potential
Active exchange of information be-
tween the stakeholders in work-
shops and through sharing data-
bases and reports
Increased influence of Small and
Marginal farmer groups, NGOs on
the agenda of research institutions
Increased participation of farmers’
organizations in testing out promis-
ing technologies
Records of annual water budgets of
user departments planned every
year
Communications of NGOs actively
involved in providing support to the
Govt in preparing water budget at
the local level
Cropping pattern recommended is
appropriate to the water budget
which is unique to each watershed
Annual water audit at the water-
shed level done
30% increase in employment gen-
erated by investing in growth iden-
tified growth engines.
All the stakeholders are aware of
the pros and cons of a globalized
economy and its impact on rural
communities especially the poorer
sections
Increased
synergy in the
activities of
different
stakeholders
of Rural De-
velopment
where in the
stake holders
complement
each others
works
All activities
and strate-
gies and co-
ordination ef-
forts are fi-
nally linked
to overriding
policies and
guidelines
Indicators, which have been given above, are primarily the process indicators, which help in monitoring the processes that
goes in attaining the objectives.
INDICATORS FOR PRO POOR STRATEGIES IN AGRICULTURE AND LIVESTOCK
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
67 PSU-APRLP
Objectives • Intermediate outputs • Indicators Final Outputs
Increased availability of technol-ogy and in-puts and as-sets for inte-grated farming systems
• Increased integration of agriculture and livestock programmes
• Healthier and better quality of live-stock maintained at the village level by farmers
• Emphasis on Participatory Technol-ogy Development (PTD) by research institutions for location specific re-search on farming systems through the consortium approach
• Emphasis on crop diversification to-wards less water demanding crops like millets along with cereals
• Increase in soil fertility in marginal lands through increase in pulse culti-vation and biological nitrogen fixa-tion
• Emphasis on regeneration and con-servation of Common Property Re-sources (CPR) as a necessary base for livestock and farming systems development
• Water conservation measures with more emphasis on reducing erosion primarily through increase in ground cover by flora as well as low cost local structures constructed by the local communities with community knowledge
• Reduction in erosion of soil due to watershed management and in-crease in natural regeneration
• Rural assets in the form of increased better quality cattle, and small rumi-nants and poultry become a part of the farming system
•Fodder cultivation taken up in at least ___ No. of farms as a part of the initiative to increase farm diversity and fodder availabil-ity
•Better quality fodder that can withstand wider variation in cli-matic conditions have been introduced and are being cultivated by farmers
•Fodder requirement on a watershed basis is assessed and is known to all the stakeholders in the watershed for making fodder plans
•Agricultural residues are effectively recy-cled for fodder pur-pose through enriching them through low cost silage preparation
•___% increase in the area and ___% in-crease in production of millets and pulses and similar less water de-manding crops
•Milk and other dairy production increased by____% and thereby enhancing the income of the rural community
• Farmers, Farmer Groups are aware of the dif-ferent technolo-gies of farming systems and are use it depending upon their spe-cific needs
• Increased diver-sity in farm enter-prises integrating crop and live-stock.
• Large area of CPR regenerated and the outputs of these CPR are being used sus-tainbly by the farmers
• Fertility status of the farms in-creased due to higher level of organic matter availability
• Reduction in loss of food grains due to improved and low cost grain storage methods adopted
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
68 PSU-APRLP
Objectives Intermediate outputs Indicators Final Outputs
I n c r e a s e d
availability
of social
methods in
organiz ing
platforms at
wa te r s hed
level, includ-
ing gender
The records of technologies tested
and adapted in the PTD process
address social and process
aspects of PTD such as gender
division of labour, and gender
specific perceptions about
technologies available
Availability of descriptions of
social approaches promoted in
agriculture, available in hand
books or field manuals of NGOs
and Governments departments
Application of these methods by
N G O s a n d d e p a r t m e n t s
autonomously
Farmer groups, NGOs and
Government departments use
include social methods in their
planning
Equitable decision making, ac-
cess and control of resources
by men and women
Gender and
Social meth-
ods main-
streaming in
all agricul-
ture and
watershed
plans
Reduction in
e x t e r n a l
chemical in-
puts at the
farm level
thereby re-
ducing the
cost of culti-
vation as
well as in-
c r e a s i n g
profitability
Reduction in the use of chemical
pesticides and fertilizers and
increasing substitution by natural
fertilizers resulting in enhanced
soil fertility and increased organic
matter
Reduction in the use of pesticide
resulting in improved ecological
balance in agro eco systems
__% Increase in farmers in-
come due to reduction in costs
Increase in biodiversity by __
% due to reduction in pesticide
usage
Enhanced bio diversity due to
regeneration and conservation
of CPR by rural communities
___ No. of people facilitated
in CPR regeneration
Farmers apply __% more or-
E n h a n c e d
farm income
leading to
reduction in
poverty
I m p r o v e d
Rural and
Agro eco-
logical con-
ditions
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
69 PSU-APRLP
Objectives Intermediate
outputs Indicators Final Outputs
Empower-
ment of
women and
small and
marginal
farmers
through so-
cial learn-
ing proc-
esses
Social coher-
ence is
strengthened
among rural
communities
among men
and women
Social reali-
zation of
women as
equal role
and as part-
ners in agri-
culture devel-
opment
Collective decision making on input pur-
chase, pest and disease management and
marketing
Women are empowered by increasing
their knowledge and hence more self re-
spect and respected by others because of
their capacity to effectively contribute to
farming systems
Mobility of women increased and they visit
agricultural knowledge centres, training
centres and regional farmer meetings
Women are able to pursue a more eco
friendly approach to agriculture in spite of
pressure of pesticide dealers and husbands
to go back to chemical farming
Women gain more confidence in their own
capacity to improve agriculture
Small and mar-
ginal farmers
and especially
women are able
to contribute sig-
nificantly and
confidently to im-
provement of
farming systems
and thereby im-
proving their own
livelihood
POVERTY ERADICATION ACTION PLAN VI. EVOLVING ACTION PLAN LOG FRAMES
70 PSU-APRLP
71 PSU-APRLP
THE WAY FORWARD
CHAPTER VII
While it is true that various departments and Commissionerates with a stake
in the State’s Poverty Eradication Action Plan have clearly stated strategy
papers and action plans, there is need to integrate these into a Statewide
Poverty Eradication Action Plan to be led by the SPEM. Further, cross-sectoral
processes for synergised planning, optimising resource use and synchroniza-
tion of activities too will have to be coordinated. There is also the need to
evolve a ‘final’ Action Plan, which incorporates sectoral Policy matrices and
reflects the models, tools and methodologies recommended in this draft docu-
ment.
For this to happen, missions and Departments need to bring to the
public domain their long term plan (2020) with interim targets (Five year
plan targets and 2015 MDG targets). Putting these plans, with interim indi-
cators, into a Log Frame format is essential.
Departmental and Mission Action Plans will have to be discussed at
the districts level and also at representative community levels. Mandal, dis-
trict and State level workshops involving civil society, and partner/ resource
organisations, academics, advocacy and policy groups etc., are required to
finalize sectoral and Departmental Action Plans. In the process final sets of
indicators can be adopted.
The ‘Final’ Action Plan Log Frames of Missions and Departments will:
• Be integrated with the Action Plan log frame of SPEM.
• Provide the basis for State level annual review and ‘next year plan’
process.
• Provide the basis for decentralized planning and review as per the
model recommended in the present document.
• Provide the framework for the Poverty Monitoring and Social Analysis
Unit (PSAMU) to carryout its mandated responsibilities.
THE WAY FORWARD
Missions and Depart-
ments need to bring to
the Public domain their
long term plan (2020)
with interim targets
(Five year plan targets
and 2015 MDG tar-
gets)
72 PSU-APRLP
The Advantage of log frame approach to planning
The Logical Frame work exercise to be undertaken by all Missions, Depart-
ments and Commissionerates with stakes in the State’s Poverty Eradication
Action Plan, facilitates a very dynamic process in monitoring of goals and
outcomes. The Intermediate Output Indicators linked to target- driven activi-
ties play a crucial role in Annual Reviews, enabling planners to zero down on
the factors that enabled planned outcomes and outputs, and those that pre-
vented them being realized.
The next year’s perspective plan could be much more localized and
‘debugged’ as a result of the above process. The Log Frame approach,
therefore enables a high order of detailing and spatio-temporal specificity,
without losing sight of the long-term goals. In this process, it has to be kept in
mind that final indicators involve several factors and complexities which are
beyond the control of policy makers and plan implementers. Similarly, Inter-
mediate Indicators cannot be frozen, since they will change through the very
implementation of the Action Plan.
Draft Document: “Consolidating AP’s Pov-
erty Reduction Action Plan”
Conversion of Action Plans of other Missions and Depart-
ments into Log Frame format
Draft Action Plan Log Frame of SPEM
Consolidate Intermediate (input-output) Indicators
and Final (outcome-impact) Indicators
Consolidate Intermediate (input-output) Indicators and Final (outcome) Indicators for
Sectoral Action Plans
‘Final’ Action Plan Log Frame of SPEM ‘Final’ Sectoral Ac-
tionPlans (ActionPlan Log Frames of Mis-
sions)
ActionPlans of Depts., Commission-
erates in Final Log Frame form
New Methodologies, Tools, Processes etc.
Participatory Process, Public Discussions
PSAMU
Link to Vision 2020, MDG
2015 10th Five Year Plan
OVERVIEW OF THE WAY FORWARD
The Intermediate Out-
put Indicators linked to
targets driven activities
play a crucial role in
Annual Reviews ena-
bling planners to zero
down on the factors
that enabled planned
outcomes and outputs.
POVERTY ERADICATION ACTION PLAN VII. THE WAY FORWARD
73 PSU-APRLP
MONITORING AND REVIEW The Monitoring and Review mechanism of the Poverty Reduction strategy of
AP has already taken shape during the past four to five years. In adopting
a log frame approach to the Action Plan, it will also be possible to incorpo-
rate a Plan Monitoring and Impact Assessment System (PMIAS). The PMIAS
method will facilitate both convergence at the community level and the man-
agement of challenges of a complex system at the State Level.
The Mission mode, in such a situation, facilitates inputs of the stake-
holders and various departments falling within the purview of each sector,
and also the managing of externalities to achieve optimum results.
A central feature of the Monitoring and Impact Assessment System
and the Annual Review and Next Year Planning process is the recognition of
the apex role of the State Poverty Eradication Mission in leading the Poverty
Eradication Action Plan. In this role, it will also have a coordination role; in
the review of the annual plan performance of other Missions and Depart-
ments to the extent of their relevance and impact on the Poverty Eradication
Action Plan Log Frame. SPEM will be supported in this process by PSAMU in
its mandated role and the PSU-APRLP as a Resource Agency.
A central feature of the
Monitoring and Impact
Assessment System and
the Annual Review and
Next Year Planning
process is the recogni-
tion of the apex role of
the State Poverty Eradi-
cation Mission in leading
the Poverty Eradication
Action Plan.
POVERTY ERADICATION ACTION PLAN VII. THE WAY FORWARD
74 PSU-APRLP
POVERTY ERADICATION ACTION PLAN VII. THE WAY FORWARD
75 PSU-APRLP
AP Andhra Pradesh APRLP Andhra Pradesh Rural Livelihoods Programme AP-RPRP Andhra Pradesh Rural Poverty Reduction Project APSRAC Andhra Pradesh State Remote Sensing Applications Centre APUSP Andhra Pradesh Urban Services for the Poor BPL Below Poverty Line BPR Business Process Reengineering CM Chief Minister CPR Common Property Resources DFID Department For International Development DPAP Drought Prone Area Programme DPIP District Poverty Initiative Project GDP Gross Domestic Product GIS Geographical Information System GoAP Government of Andhra Pradesh GoI Government of India
ICDS Integrated Child Development Services
ICM Institutional Change Management ICT Information and Communication Technology IDG International Development Goals IEC Information, Education and Communications IG Intermediate Goals IT Information Technology M&E Monitoring & Evaluation MDG Millennium Development Goals MIS Management Information System MPHS Multi - Purpose Household Survey
Abbreviations
76 PSU-APRLP
NGO Non-Government Organisation
NRM Natural Resource Management
PCM Project Cycle Management
PDS Public Distribution System
PEAP Poverty Eradication Action Plan
PHC Primary Health Centers
PHM Participatory Hydrological Management
PIP Participatory Identification of Poor
PLA Participatory Learning and Action
PMIAS Plan Monitoring and Impact Assessment System
PPA Participatory Poverty Appraisal
PPMIA Participatory Plan Monitoring and Impact Assessment
PSAMU Poverty and Social Analysis and Monitoring Unit
PSU Programme Support Unit
PTD Participatory Technology Development
RD Rural Development
SC Scheduled Caste
ST Scheduled Tribe
SERP Society for Elimination of Rural Poverty
SGE Selected Growth Engines
SHG Self Help Group
SIP Slum Improvement Programmes
SPEM State Poverty Eradication Mission
SWPRAP State Wide Poverty Reduction Action Plan
UAE Universalisation of Adult Education
UEE Universalisation of Elementary Education
UG User Group
77 PSU-APRLP