The document outlines Andhra Pradesh's process to consolidate its Poverty Eradication Action Plan. Key elements include clarifying linkages between missions and departments, building ownership of the plan, agreeing on indicators, and integrating sectoral strategies. The state addresses poverty through four missions - Poverty Eradication, Water, Literacy, and Employment Generation - and the Health Department. The consolidation will further integrate these to achieve the state's vision of eliminating poverty.

2. INDEX
CHAPTER ITEM PAGES
CONSOLIDATION OF THE POVERTY ERADICATION
I 1-6
ACTION PLAN
KEY ELEMENTS OF THE CONSOLIDATION
II 7-12
PROCESS
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

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

4. 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

5. CHAPTER I
CONSOLIDATION OF THE
POVERTY ERADICATION ACTION PLAN

6. CONSOLIDATION OF THE POVERTY ERADICATION
ACTION PLAN
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
As a part of the State’s poverty eradication plan, a large number of
poverty eradication
Women’s Self Help Groups have been formed (with a total savings of over
plan, a large number of
Rs.1500 crore) and networked into federations. Each of the 45,000 habita-
Women’s Self Help
tions today has at-least one Self-Help Group. The membership of Self- Help
Groups have been
Groups is estimated to cross 8.5 million from the present 6 million in the next
formed (with a total
few years.
savings of over Rs.1500
The extreme poor in the State, including the disabled, child labour
crore) and networked
and other disadvantaged sections, are being organised under a programme
into federations.
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.
PSU-APRLP 6

7. POVERTY ERADICATION ACTION PLAN I. CONSOLIDATION OF THE POVERTY ERADICATION ACTION PLAN
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-
The progress being tors, where, too, inclusion in programmes is based on Participatory Identifica-
made by Andhra tion of the poor (PIP).
Pradesh in addressing The progress being made by Andhra Pradesh in addressing poverty
poverty effectively is effectively is on account of holistic strategies for pro-poor growth and an in-
on account of holistic tegrated Poverty Eradication Action Plan.
strategies for pro-poor
To facilitate the integration of resources and achieve convergence,
growth and an inte-
AP has strategically addressed poverty issues through four key Missions
grated Poverty Eradica-
(the Poverty Eradication, Water Conservation and Utilisation, Literacy,
tion Action Plan.
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.
7 PSU-APRLP

8. POVERTY ERADICATION ACTION PLAN I. CONSOLIDATION OF THE POVERTY ERADICATION ACTION PLAN
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. Processes have been
f. Integrate the Poverty Eradication Strategy and Action Plan more effec- initiated based on clear
tively with the budgetary process. understanding of the
g. Align various sectoral reforms with the Poverty Eradication Strategy and purpose, for further in-
goals tegrating sectoral
strategies and Action
h. Achieve role clarity, and define the stake and contributions of various
Plans with the State
constituents in the Poverty Eradication Strategy and Action Plan.
Wide Action Plan of the
i. Create a conducive and transparent environment for the Union Govern-
Poverty Eradication
ment’s initiatives in Poverty Eradication and also for initiatives by Donor
Mission.
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.
PSU-APRLP 8

9. POVERTY ERADICATION ACTION PLAN I. CONSOLIDATION OF THE POVERTY ERADICATION ACTION PLAN
AP’s POVERTY ERADICATION ACTION PLAN
LEAD MISSIONS AND THEIR MAJOR OBJECTIVES
STATE POVERTY ERADICA- WATER MIS- EDUCATION EMPLOYMENT GENERA- DEPT. OF HEALTH, MEDI-
TION MISSION SION FOR ALL TION MISSION CAL & FAMILY WELFARE
o To develop a clear vision o Conservation o The primary o To develop a vision and o Every person will have
for poverty eradication and and judicious goal of the strategy for employ- access to responsive ba-
recommend strategies for use of water state is to in- ment generation and to sic healthcare and spe-
time bound achievement of in the State. crease over- prepare a time bound cialised healthcare at
this vision. all literacy action plan for imple- affordable prices.
o To formulate levels from mentation of the same.
o Take measures for ensuring the current o Women will have safe
convergence of all sectoral - Effective 54% of the o To suggest measures to and successful pregnan-
plans and programmes. plans and population to derive synergy of the cies. Infant / child mortal-
methods for over 95% plans and programmes ity due to ailments like
o Ensure technical updation conserving wa- before 2005. of various departments ARI and diarrhoea will
for sustainable development ter working directly or indi- be reduced drastically.
of the poor. o Special focus rectly for employment
- Time-bound on the back- generation. o The spread of AIDS will
action plan for ward and less be contained
o Suggest time bound and conservation of
specific measures for em- literate areas o Advise on institutional
water of the State. and organisational
ployment security, food se- o Communicable diseases
curity and universal provi- o To implement mechanisms for effec- like Malaria and TB will
sion of health care, drinking the conserva- o Universalisa- tive implementation of be effectively prevented.
water, housing and elemen- tion and use tion of Ele- the Action Plan for em-
tary education among all of water with mentary edu- ployment generation. o Families will be small and
poor households. the co- cation. better spaced. Equitable
ordination of o Regularly monitor and access to quality health
o Effective implementation of all function- o During the oversee employment care will be ensured.
the entitlements and rights ally related next 3 years generation action plans Health sector will be
of the poor. Especially of departments. take adult in the State and advise equipped to deliver
women, the scheduled literacy, on the future steps to be quality services for non
castes., scheduled tribes, the o To carry-out through the taken. communicable diseases
backward classes and the water conser- Akshara and trauma and injury
minorities. vation pro- Sankranthi o Initiate public debate cases.
grammes eco- Programme, on important policy is-
o Promote social mobilisation: nomically to sues related to employ- o Life expectancy levels
the self-help and other func- 105,00,000 ment generation and will reach 68 years for
tional groups as the princi- o Encourage Adult illiter- build consensus for pol- males and 70.6 years for
pal mechanism for poverty local people’s ates. icy reforms related to it. females from the current
eradication. participation 62 years and 64 years
in water con-oAdequate o Advise on Human Re- respectively.
o Provide guidance on the servation infrastructure source Development
best practices in the national and socio through institution build- o Enhancing technical effi-
and international spheres. o Monitor and economic con- ing and suggest a ciency of key programs
assess con- ditions to be framework for optimum and clinical effectiveness.
o Advocate and recommend tinuously the c r e a t e d utilization of the infra-
suitable pro-poor policies water conser- through con- structure available for o Ensuring micro/macro
and ensure adequate budg- vation pro- certed sus- training on a continuous economic effectiveness in
etary allocation. grammes tained and basis and identify fresh the use of resources
multi pronged requirements of infra-
o Monitor periodically. o To obtain the action. structure and the re- o Improving quality of
people’s sources for training. care/consumer satisfac-
views and o To use mod- tion
suggestions ern technol- o To facilitate manpower
on the ways, ogy to im- planning in key sectors o Assuring systems for long-
means and prove deliv- of the economy. term sustainability.
methods in ery of high
respect to quality edu- o To identify and advise
water conser- cation to un- on the regulatory as-
vation. reached ar- pects of training.
eas.
9 PSU-APRLP

10. POVERTY ERADICATION ACTION PLAN I. CONSOLIDATION OF THE POVERTY ERADICATION ACTION PLAN
Source: Vision 2020 Swarna Andhra Pradesh
Source: Vision 2020 Swarna Andhra Pradesh
PSU-APRLP 10

11. POVERTY ERADICATION ACTION PLAN I. CONSOLIDATION OF THE POVERTY ERADICATION ACTION PLAN
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.
11 PSU-APRLP

12. CHAPTER II
KEY ELEMENTS OF THE
CONSOLIDATION PROCESS

13. KEY ELEMENTS OF THE CONSOLIDATION PROCESS
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.
PSU-APRLP 13

14. POVERTY ERADICATION ACTION PLAN II. KEY ELEMENTS OF THE CONSOLIDATION PROCESS
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.
The Janmabhoomi initiative has created a very powerful plat- A PRO-POOR GROWTH STRATEGY
form and is a powerful leverage for all sectors in the Poverty REQUIRES, AMONG OTHERS
Eradication Strategy of AP. It provides a thematic setting for • Strong incentives for investment
convergence and the execution of the communication strategy (more capital per worker).
essential to the success of the Action Plan. Sectoral Action Plans
• Fostering trade and business link-
have to reflect how the Janmabhoomi Platform will be lever-
ages for faster transfer of knowl-
aged synergistically. Aligning on a common platform, along
edge.
with other elements of the Action Plan, will also address the criti-
• Policies and investments for inter-
cism of AP’s Poverty initiatives being fragmented and having
nal market integration.
avoidable redundancies and duplications.
14 PSU-APRLP

15. POVERTY ERADICATION ACTION PLAN II. KEY ELEMENTS OF THE CONSOLIDATION PROCESS
• 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 The growth of social
GSDP growth. The Sectoral and Sub-sectoral Action Plans and the State- networks in AP has
wide Action Plan for Poverty Eradication have to now establish clear links been remarkable and
with these engines of growth. This will also facilitate positive responses in the State has succeeded
embedding the Action Plan in the budgetary process. in organising a range of
LEVERAGING AND STRENGTHENING groups based on needs
and programmes, etc.,
SOCIAL CAPITAL which has led to accu-
The growth of social networks in AP has been remarkable and the State has mulation of social capi-
succeeded in organising a range of groups based on needs and pro- tal.
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.
PSU-APRLP 15

16. POVERTY ERADICATION ACTION PLAN II. KEY ELEMENTS OF THE CONSOLIDATION PROCESS
POVERTY MAPPING
3. The Poverty Eradication Action Plan
The most critical and important milestone in rural poverty
reduction is to identify the target poor. In addition to the in its consolidation needs to incorpo-
Govt. of India using the Participatory Poverty Assessment rate steps to maximize the potential of
approach, Participatory Identification of Poor (PIP) was Self-Help Group through:
done. Tools like Transect Walk, Social Mapping, Vulnerabil-
a)) Training Needs Assessment based
ity Analysis, Disability Mapping and Well Being Analysis
were used to collect information and identify the poorest of on their productive and reproductive
the poor and the poor through community participation. workload.
b)) Leverage the SHG movement for
Capacity Building and consequent
POOREST OF THE POOR
POOR strengthening of Social Capital
• Can eat when they • Not possessing land c) ) Utilize SHGs as a platform for sen-
get work, part of • Can live on daily wages sitization and action on gender and
social support from
the State. • School going children are sent other equity issues.
for work
• No shelter No
proper clothing • Can get some credit
• Cannot send chil- • Not able to repay debts
dren to school • No proper shelter
• Cannot get credit • No respect in the society
Spatial distribution of SHGs
Number of SHGs per habitation
Dec 2001
Number of SHGs
per habitation
5
20
50
183
APRLP Mandals
Other Mandals
National highway
State highway
Railway
N
0 10 20 km
DPAP
16 PSU-APRLP

17. POVERTY ERADICATION ACTION PLAN II. KEY ELEMENTS OF THE CONSOLIDATION PROCESS
The circled areas are pockets of ex-
treme female literacy Poverty.
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.
PSU-APRLP 17

18. CHAPTER III
ORIENTING THE
CONSOLIDATION PROCESS
18 PSU-APRLP

19. POVERTY ERADICATION ACTION PLAN III. ORIENTING THE CONSOLIDATION PROCESS
ORIENTING THE CONSOLIDATION PROCESS
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.
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.
PSU-APRLP 19

20. POVERTY ERADICATION ACTION PLAN III. ORIENTING THE CONSOLIDATION PROCESS
SELECTED GROWTH ENGINES
SEMI-SKILLED POPULATION/ILLITERATES EDUCATED UNEMPLOYED
Sector Activity Sector Activity
Primary 1. Agro-processing and services Primary 1. Agricultural services
2. Vegetable cultivation, processing and 2. Agriculture extension
trading 3. Input supply marketing
3. Horticulture and floriculture 4. Produce marketing
4. Sericulture
5. NTFP processing
Secon- 1. Handicrafts (including Handlooms) Secon-
dary 2. Leather tanning and goods dary
3. Stoneware & ceramics
4. Cement & construction material
Tertiary 1. Rural services Tertiary 1. IT enabled services
2. Paramedics and Paravets 2. Tourism and hospitality
3. Transportation 3. Education and health care services
4. House-keeping 4. Business and financial services (including
micro-finance, micro-insurance etc.)
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.
20 PSU-APRLP

21. POVERTY ERADICATION ACTION PLAN III. ORIENTING THE CONSOLIDATION PROCESS
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 M & E process in-
corporated into the Ac-
The Action Plan has to address this by incorporating MIS nodes at all
tion Plan should have
critical interfaces and institutionalise feedback cycles that translate into Deci-
clear-cut provisions for
sion Support Systems at various levels, and also as a Policy Resource and
State-Level Reviews
tool for midcourse corrections where required.
and be supplemented
The M & E process incorporated into the Action Plan should have
by workshops and other
clear-cut provisions for State-Level Reviews and be supplemented by work-
initiatives to realize the
shops and other initiatives to realize the vision of a Learning Community.
vision of a Learning
The process will also respect that Poverty is not a static concept and Community.
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.
PSU-APRLP 21

22. POVERTY ERADICATION ACTION PLAN III. ORIENTING THE CONSOLIDATION PROCESS
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.
Process documentation PROGRAMME-PROJECT MODES AND ADDRESSING
not only consolidates REDUNDANCIES AND DUPLICATIONS
learnings in an experi-
ential mode, but also Chapter 2 (2.8) of the Draft Tenth Five-Year Plan of the Government of In-
serves to reflect upon dia mentions that “the rapid growth in the number of schemes also entailed
the how of things and an undesirable build up of unproductive cost on administration and expendi-
communicate experi- ture”. Though it has been remarked that A.P. too has a significant amount of
ences and best prac- redundancy/duplication in its Poverty Eradication Programme, programmes
tices to other constitu- such as the APRLP (Andhra Pradesh Rural Livelihoods Programme (APRLP)
ents / actors of the Pov- and Andhra Pradesh Urban Services for the Poor (APUSP) have already be-
erty Eradication Plan. 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.
22 PSU-APRLP

23. CHAPTER IV
POVERTY AND THE
ANDHRA PRADESH CONTEXT

24. POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
POVERTY AND THE ANDHRA PRADESH CONTEXT
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 SERP focuses on the
reduction efforts in the state. very poor and
communities not
The SPEM’s strategy paper in 2001 lists a broader set of measures to
covered by previous
reduce poverty, which include:
poverty reduction
a. Generation of faster growth, especially in agriculture;
initiatives, and also acts
b. Promotion of health and education services; as a forum of advocacy
c. Enhancing social capital through Self Help Groups (SHGs) for the formulation and
d. Promoting sustainable livelihoods of the poor; implementation of pro-
poor policies, plans and
e. Focusing on backward regions and poorer sections of the society; and
programmes.
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.
PSU-APRLP 24

25. POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
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
The selection of poor at Health and Family Welfare.
the community or
The Andhra Pradesh Rural Livelihoods Programme (APRLP) under the
household levels has
Water Mission is concentrating its efforts in the same locations developed
undergone several
under the Drought Prone Area Programme (DPAP). The APRLP initiatives are
positive transitions from
systematic in their approach with special emphasis on community
ad hoc identifications
participation and empowerment to identify, design and implement livelihood
through baseline study
options.
approaches to
Participatory Poverty IDENTIFYING THE POOR
Appraisal (PPA).
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.
25 PSU-APRLP

26. POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
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:
PSU-APRLP 26

27. POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
CLUSTERING OF DISTRICTS WITH THEIR SALIENT FEATURES
27 PSU-APRLP

28. POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
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- APRLP seeks to
mentioned sources and develop indices of Natural Resources Degradation and consider people’s
Multiple Deprivations. The watershed analysis carried out by APSRAC livelihood situations in
(Andhra Pradesh State Remote Sensing Applications Centre), giving the four their entirety.
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 Box – 2 : 9 Point Selection Criteria for Selection of
Micro Watershed Areas Adopted by APRLP
Typologies 1 – 4
Very high NRM deprivation with high, medium • Percentage of small and marginal farmers
moderate or low levels of poverty respectively • Percentage of SC / ST holdings
Typologies 5 – 8 • Percentage of women organised in SHGs and
Medium NRM deprivation with high, medium participating in programme
moderate or low levels of poverty respectively
Typologies 9 – 12 • Status of ground water
Moderate NRM deprivation with high, medium • APSRAC prioritisation
moderate or low levels of poverty respectively • Livestock population
Typologies 13 – 16 • No. of families affected / involved in migration
Low NRM deprivation with high, medium moderate or • Contiguity of proposed
low levels of poverty respectively • Availability of fallow / wasteland & CPR for the
poor to utilise usufruct
PSU-APRLP 28

29. POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
THE AP-DPIP INITIATIVES
The AP-District Poverty Box – 3 : Indicators for BPL Identification
Initiative Programme (AP- 1. Size of operational holding of land
2. Type of house
DPIP), in particular, has 3. Average availability of normal wear clothing (per
person in pieces)
extended beyond the scope of 4. Food security
5. Sanitation
GoI guidelines by adopting 6. Ownership of consumer durables
7. Literacy status of the highest literate adult
the PIP approach in tandem 8. Status of the household in labour force
The PIP process is 9. Means of livelihood
with the routine BPL survey 10. Status of children (5-14 years) (Any child)
used with sufficient
based on the 13 GoI 11. Type of indebtedness from household Preference
12. Reasons for migration
care to ensure total
recommended indicators for assistance
community
(Box – 3). Separate BPL lists
participation through
are prepared using the BPL survey as well as the PIP process and the lists
preliminary rapport
are compared to shortlist the common households. While the disaggregated
establishment,
information on these indicators is used for identifying the poorest of the poor
informal meetings
and the marginally poor sections of the community, aggregated information
with key community
from these indicators is used for policy formulation.
members, community
meetings, sharing of Using the Participatory Poverty Assessment approach, specifically the
information and PIP (Participatory Identification of the Poor) process, DPIP has adopted tools
involvement & like Transect Walk, Social Mapping, Vulnerability Mapping, Disability
approval of the Mapping and Well Being Analysis to gather the required information that
village panchayats. 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.
29 PSU-APRLP

30. POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
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
Women’s self help
facilitate realising the Goals of the Action Plan.
groups are a success
The reforms reflect the State’s strategies for achieving MDG’s by story in the State and
2015 and eradicate poverty by 2020 through a focus on the following have formed a central
policy areas: element in the Strategy
for poverty eradication
ECONOMIC GROWTH through social
mobilization, community
The distance between AP and all India and fast performing State’s widened
empowerment and
in the post-reform period on account of weak social and economic
capacity building.
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;
PSU-APRLP 30

31. POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
(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.
NATURAL RESOURCES MANAGEMENT (WATER MISSION)
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.
31 PSU-APRLP

32. POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
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
There is thrust in policy
credit for small scale and rural industries, and good governance by cutting
framework in AP
down delays in giving clearances and reducing corruption stand out
towards making IT an
prominently as areas of reform for attracting private investment domestic as
enabler in development
well as foreign.
and equalizer of
INFORMATION TECHNOLOGY opportunities.
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.
PSU-APRLP 32

33. POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
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
A.P. spent around 6 to
Development’ as given in Central and State budgets. The head ‘Social
11 per cent of its GSDP
Services’ includes, among other things, education, health & family welfare,
on the social sector in
water supply and sanitation. The expenditure under the head ‘Rural
the last two decades. It
Development’ (which is listed under ‘Economic Services’ in the budget
may be noted that the
classification) relates mostly to anti-poverty programmes. A.P. spent around
impact on the outcomes
6 to 11 per cent of its GSDP on the social sector in the last two decades. It
in social sector depends
may be noted that the impact on the outcomes in social sector depends on
on both and the
both expenditures and on the effective utilization of these expenditures.
effective utilization of
these expenditure. 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.
33 PSU-APRLP

34. POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
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.
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.
PSU-APRLP 34

35. POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
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
Primary healthcare to make the private sector accountable to the poor. The Government is
services are being planning to promote institutions to regulate the private sector.
made accountable to
the local communities.
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.
35 PSU-APRLP

36. POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
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
Major programmes that
Anna Yojana improves the food security of destitutes.
improve food and
These programmes are being strengthened in order to reach the benefits to nutrition security are
the target population more effectively. In all the above pro-poor policies, the Public Distribution
special problems of disadvantage sections of SCs and STs are recognized. system (PDS),
Integrated Child
URBAN POVERTY Development Services
(ICDS), and Antyodaya
Large -scale rural to urban migration of populations in search of more secure
Anna Yojana.
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.
PSU-APRLP 36

37. POVERTY ERADICATION ACTION PLAN IV. POVERTY AND THE ANDHRA PRADESH CONTEXT
Concerning identification of the urban poor, the APUSP project has also
adopted similar procedures by gathering information on seven non-economic
parameters. Each parameter consists of six attributes indicating the condition
from ‘worst’ to ‘better’. Accordingly, weightage scores are assigned to each
attribute, i.e. from ‘100’ (worst condition) to ‘0’ (better condition). Thus, a
household scoring an average of 100 will be given top priority under the
programme Plan.
Example of Household Rating for BPL Qualification by APUSP
Parameter Attributes Score
1. Roof Asbestos 60
2. Floor Bajri 80
3. Water No water supply 100
4. Sanitation Community dry latrine 80
5. Education level Middle pass 60
6. Type of Employment Semi skilled 80
7. Status of Children in a House Working & attending 80
Literacy classes
Sometimes
-----------------
Total 540
-----------------
Average weighted score for a household = 540 / 7 = 77.1
i.e., future beneficiary
37 PSU-APRLP

38. CHAPTER V
MONITORING AND IMPACT ASSESSMENT

39. MONITORING AND IMPACT ASSESSMENT
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-
The State has adopted
hancement of human well being. This approach is most succinctly captured in
a Plan Cycle Manage-
the MDGs (millennium development goals) adopted by the United Nations in
ment Approach and
its Millennium Declaration. Similar to MDGs, the Tenth Plan, for the first time,
created a Logical
sets monitorable targets for the Tenth Plan period (2002-07) and beyond.
Framework for its Pov-
Some of the major targets at the national level are: (1) Reduction in poverty
erty Reduction Action
ratio by 5 percentage points by 2007 and 15 percentage points by 2012;
Plan.
(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.
PSU-APRLP 39

40. POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT
40 PSU-APRLP

41. POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT
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.
Table: Selected Indicators and Targets for Andhra Pradesh
Indicator in Vision
Development Goal AP:MDG
Indicator 2000 or closest 2020 in
2015
year 2020
Poverty and Nutrition Head count poverty ratio 21.6* 13.1 0
Under nutrition under age 37.7 24.6 Reduce
5 malnutri-
tion
Child Labour 9.98 or 25 0
Universal primary Net enrolment ratio 90.3 99 100
education (primary)
Students reaching from -- 95 90
grade 1 to grade 5
Literacy rate (7+) 61.1 99
Reduce child Infant mortality rate (per 66 23.3 10
1000 live births)
mortality
Under five mortality rate 85.5 30.3 20
(per 1000 live births)
Improve maternal Maternal mortality ratio 154 75 --
health (per 100,000 live births)
Source: World Bank (2003) except head count ratio for 2000. * Deaton adjusted estimates.
PSU-APRLP 41

42. POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT
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-
A Statewide Action
vides for managing Intermediate Indicators in relation to targeted outcomes
Plan which subsumes
across annual and other time horizons.
Sectoral Action Plans,
District Action Plans, The Action Plan Log Frame, therefore, has features that go beyond a
Mandal Level Action conventional log frame and deploy management tools and strategies which
Plans and Community do not fall in the scope of standalone projects. Critical aspects, therefore,
Level plans. 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.
42 PSU-APRLP

43. POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT
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-
The Log Frame ap-
nity level plans to go beyond mere econometric modeling and incorporate
proach to the Action
social capital and planned social change (Caste, gender and attitudes/
Plan, in order to realize
perceptions/practices in other areas which have a direct or indirect causal
its true potential, is
relationship with poverty) as critical elements. This is especially so in the Com-
complemented by a
munity level, Mandal and District plans that emerge from and feedback into
Plan Monitoring and Im-
the State Wide Poverty Reduction Action Plan.
pact Assessment Sys-
The Log Frame approach to the Action Plan, in order to realize its tem.
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.
PSU-APRLP 43

44. POVERTY ERADICATION ACTION PLAN V. MONITORING AND IMPACT ASSESSMENT
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
Participatory Plan Moni-
agents. Moreover, final indicators generally change slowly over time while,
toring and Impact As-
intermediate indicators change more rapidly, giving an indicators with which
sessment is part of the
is happening to some of its determinants.
process of integrating
stakeholder participa- Participatory Plan Monitoring and Impact Assessment is part of the
tion not only in planning process of integrating stake holder participation not only in planning and im-
and implementation but plementation but also in reviewing the progress of plan implementation and
also in reviewing the evaluating outcomes. Such plan monitoring and Impact Assessment System will
progress of plan imple- facilitate Participatory Learning and Action (PLA) and becomes a Learning,
mentation and evaluat- Capacity Building and Empowerment tool too.
ing outcomes.
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.
44 PSU-APRLP