FILE COPy. Public Disclosure Authorized. Document of The World Bank FOR OFFICIAL USE ONLY. Report No.2863-IN, Public Disclosure Authorized INDIA

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1 Public Disclosure Authorized Document of The World Bank FOR OFFICIAL USE ONLY FILE COPy Public Disclosure Authorized INDIA Report No.2863-IN, Public Disclosure Authorized STAFF APPRAISAL REPORT KERALA AGRICULTURAL EXTENSION PROJECT Public Disclosure Authorized May 1, 1980 Education and Agricultural Institutions Division South Asia Projects Department lrhis document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization s

2 CURRENCY EQUIVALENTS US$1.00 Rupees (Rs) 8.40 WEIGHTS AND MEASURES Metric System ABBREVIATIONS AD - Agricultural Demonstrator ADA - Additional Director of Agriculture AEO - Agricultural Extension Officer APC - Agricultural Production Commissioner BDO - Block Development Officer CDO - Community Development Department DAE - Directorate of Agricultural Extension DAO - District Agricultural Officer DDA - Deputy Director of Agriculture DEA - Department of Economic Affairs DOA - Department of Agriculture DTC - District Technical Committee EEI - Extension Education Institute GOI - Government of India GOK - Government of Kerala HYV - High Yielding Varieties ICAR - Indian Council of Agricultural Research IRRI - International Rice Research Institute JAO - Junior Agricultural. Officer JDA - Joint Director of Agriculture KAU - Kerala Agricultural University PAO - Principal Agricultural Officer SDAO - Subdivisional Agricultural Officer SMS - Subject Matter Specialist STC - State Technical Committee T & V - Training and Visit System of Agricultural Extension VEW - Village Extension Worker VLW - Village Level Worker

3 FOR OFFICIAL USE ONLY INDIA KERALA AGRICULTURAL EXTENSION PROJECT Table of Contents Page No. I. BACKGROUND... 1 Introduction... 1 Agriculture in India... 1 Agricultural Extension... 2 Existing State Projects... 4 Agriculture in Kerala... 6 Agricultural Services in Kerala II. THE PROJECT... 9 A. General Description... 9 B. Detailed Features The Extension Methodology.10 Incremental Staff Requirements.12 Training.13 Housing.14 Transport.14 Equipment.14 Operating Expenses.15 Monitoring and Evaluation.15 III. COST ESTIMATES AND FINANCING..15 A. Cost Estimates.15 B. Proposed Financing.16 C. Procurement.16 D. Disbursement and Audit.17 IV. ORGANIZATION AND MANAGEMENT.18 Extension Service.18 Input Supplies.19 State Level Coordination.19 Linkages between Extension and Research 19 Monitoring and Evaluation.22 Farm Information.22 V. BENEFITS, JUSTIFICATION AND RISKS.22 Financial Benefits.22 Economic Benefits.22 Project Risks.23 VI. AGREEMENTS TO BE REACHED AND RECOMMENDATIONS 24 This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.

4 Table of Contents (Continued) ANNEXES I Table 1 Summary of Project Costs Table 2 Civil Works Table 3 Vehicles and Equipment Table 4 Training Costs Table 5 Incremental Staff Salaries Table 6 Incremental Operational Costs Table 7 Requirement and Availability of Extension Staff Table 8 Requirement of Extension Staff by Years Chart Extension Organization Chart Linkages between Extension and Research II Training III Table 1 Implementation Schedule Table 2 Estimated IDA Disbursements MAP IBRD 14690

5 INDIA KERALA AGRICULTURAL EXTENSION PROJECT I. BACKGROUND Introduction 1.01 The proposed project would be the eighth in a series of IDA assisted projects designed to reorganize and strengthen agricultural extension in India. 1/ Under the project, the Government of Kerala (GOK) would reorganize its extension service to provide farmers, on a regular and systematic basis, with up to date advice on farming practices best suited to their specific conditions and capable of having an immediate impact on production and income. This would be achieved by strictly programmed visits from regularly trained field staff, supported by professional advice from the Department of Agriculture (DOA) and from research. 2/ The project was prepared by GOK with assistance of staff of the Bank's Resident Mission in India. Initial appraisal took place in August 1979, but with follow-up visits in December when staffing details were finalised. This report is based on the findings of the appraisal mission consisting of Messrs. J. Q. Harrison, R. J. G. Le Breton (IDA), and C. M. Mathur (Consultant). Agriculture in India 1.02 The area of India is 3.27 M km of which 49% is cultivable. India's population of over 630 M is growing at an annual rate of 2.0%. National income has grown at nearly 4% per annum since 1950, and the per capita GNP reached US$150 in Although average per capita income has increased, in general there has been little change in the living standards of the vast masses of urban and rural poor, conservatively estimated at 270 M people with incomes below the poverty line of US$73 per capita per year. Thus, GOI's development plans give priority to alleviating poverty and creating employment, especially in rural areas. 1/ The seven previous projects are described in the following appraisal reports: Assam Agricultural Development Project, Cr. 728-IN West Bengal Agricultural Extension and Research Project, Cr. 690-IN Rajasthan Agricultural Extension and Research Project, Cr. 737-IN Madhya Pradesh Agricultural Extension and Research Project, Cr. 712-IN Bihar Agricultural Extension and Research Project, Cr. 761-IN Orissa Agricultural Development Project, Cr. 682-IN Composite Agricultural Extension and Research Project (Haryana, Gujarat and Karnataka), Cr. 862-IN 2/ The main principles of the proposed extension reform are described in Agricultural Extension: The Training and Visit System (World Bank, 1977)

6 Agriculture is the dominant sector of the Indian economy and contributes about 45% of GNP. It engages about 70% of the labor force and provides the base for about 60% of India's exports. During the last decade, GOI development plans have emphasized agriculture and sought to raise foodgrain production by increasing the use of irrigation, fertilizers, plant protection chemicals, and seeds of improved varieties. In support of this, GOI has modernized and expanded its agricultural credit institutions and accelerated the development of irrigation. More recently, increased attention has been given to the establishment of improved extension services and upgrading the research capabilities needed to support this extension effort Despite these endeavors and the impressive results of the Green Revolution in some areas, primarily in the wheat-growing northwestern states, annual growth in total foodgrain production over the last 15 years has been only about 2.3%, or approximately equal to the population growth. Per capita production of a number of other important crops, including cotton and oilseeds, has fallen during the period. Furthermore, India's agriculture is particularly susceptible to the vagaries of weather and foodgrain production can vary as much as 20% between successive years. Although expansion of irrigation facilities to reduce this variation remains a priority, GOI recognizes that the bulk of India's cropped area and over half of its farmers, cannot, in the foreseeable future, benefit from water-intensive agricultural technologies emphasized since the 1960s. Moreover, although much appropriate research is available, yields under rainfed conditions have shown little or no improvement over this period--a fact which prompts this project's emphasis on rainfed as well as irrigated farming. Agricultural Extension 1.05 State Governments have direct responsibility for agricultural extension; they operate through their Departments of Agriculture (DOA), generally with the cooperation of other state departments, including Community Development. While organization varies between states, the extension service is generally headed by the Director of Agriculture who reports to the Secretary of Agriculture. He is assisted by staff located at state, zonal and district levels. The Collector (the senior representative of the civil administration at the district level) coordinates activities between the various agencies of government, with the District Agricultural Officer (DAO) representing DOA. Below the district level, Agricultural Extension Officers (AEO) generally report on routine matters to the Block Development Officer (BDO), an official of the state Community Development Department. In some states, locally elected councils (panchayats) also play a role and the BDO are responsible to these bodies. Given the multitude of local activities and lack of direct administrative control by DOA, AEO are often diverted to non-agricultural activities. The village level worker (VLW), a multipurpose worker and generally an employee of the Community Development Department, is supposed to spend 75-80% of his time on agricultural extension under the direction of the AEO. However, the VLW is administratively responsible to the BDO and the lack of a well-defined agricultural program, combined with the demands of his other activities, generally result in his spending very little time on agricultural extension. The same is generally true of the AEO. What little extension work is done is neither planned systematically, nor supervised adequately.

7 Over the years, dissatisfaction with the effectiveness of the multipurpose worker for increasing agricultural production has led to the development of a variety of special programs focussing on particular crops, areas, or techniques. Staff employed under these schemes are usually under the administrative control of various subject matter departments of DOA. In a given state, such schemes usually cover only a few districts and only part (e.g. one crop) of the farmers' operations. These schemes have tended to dissipate extension efforts in many uncoordinated directions and divert attention and resources from the need to reform the main line extension agency There are us.ally too few staff to cover the farming community adequately and they lack sufficient mobility to reach farmers systematically and regularly. In addition to the organizational problems mentioned above, the extension service often suffers from inadequate and outdated staff training. Furthermore, linkages with research have been tenuous and irregular. All these factors have hampered effective extension work. They have resulted in a general stagnation in agricultural production with most extension personnel having low status, low pay and poor morale With yields in irrigated and rainfed areas remaining at levels well below potential, GOI has become increasingly concerned with improving agricultural extension. A new system of extension--the Training and Visit System (T & V)--based on frequent and regular farm visits by full-time, adequately trained extension personnel was developed in 1974 with IDA assistance. Under this approach, a substantial portion of the multipurpose VEW is transferred from Community Development Departments to DOA to work exclusively on agricultural extension. The results from the Chambal Irrigation Scheme in Rajasthan, 1/ where the system has been in operation since 1974, are impressive. CHANGES IN YIELDS IN THE CHAMBAL IRRIGATION SCHEME (RAJASTHAN) Average Yields (tons/ha) Before Crop Project 1975/ / / /b Paddy (irrigated) Sorghum (rainfed) Wheat (80% irrigated) Gram (rainfed) /a Sugarcane (irrigated) n.a /a Yields were low because of severe pod borer attack. /b Yields reduced due to drought conditions at critical periods. These results were so encouraging that the approach was adopted in nine states under the projects discussed below. 1/ This covered about 84,000 farm families and 360,000 ha of which about two-thirds is irrigated.

8 -4- Existing State Projects 1.09 The Rajasthan Agricultural Extension and Research Project (Cr IN, US$13 M, effective in February 1978), was an outgrowth of the favorable results obtained with the new approach to agricultural extension pioneered under the Chambal Command Area Development Project (Cr. 562-IN, effective September 1975) and the Rajasthan Canal Command Area Development Project (Cr. 502-IN, effective December 1974). The Government of Rajasthan is presently reorganizing and strengthening extension and supporting adaptive research to serve 2.9 M of the state's 3.7 M farm families in 17 districts where an immediate potential for improving agricultural production exists. Project implementation has picked up rapidly. Farmers have responded favorably to the system, and adopted new practices like seed treatment, basal dressing with fertilizers, and intercropping with kharif pulses which have helped them to grow a good crop even under drought conditions As a result of experience with improved extension activities in the Chambal Irrigation Command Area, Madhya Pradesh requested IDA assistance in extending the reorganization of agricultural extension services to cover both irrigated and rainfed areas in 15 of 45 districts in the state. (Cr. 712-IN, for US$10 M, effective September 1977.) Progress was good in the early stages of the project, but slowed down later due to frequent changes in project management. This problem has since been solved and the project has picked up momentum Eastern India, including Assam, Bihar, Orissa and West Bengal, is the country's "rice bowl." Despite its high potential, foodgrain yields are low and production has barely kept pace with population growth. The stagnation of agricultural production has been partly due to the inability of the extension service to give meaningful advice to farmers; similarly, research has failed to focus on the majority need for simple, low cost means of improving production. Orissa was the first state to reorganize its agricultural extension service throughout the entire state (Cr. 682-IN, for US$20 M, effective June 1977). Virtually all of the state's 3.4 M farmers are now covered by the program and according to the most recent supervision mission, good progress has been made and farmers have responded well and have accepted, on a widespread basis, new practices for increasing production, e.g., introduction of mustard as a new crop, seed treatment, and use of manually operated seed drills During the preparation and appraisal of the West Bengal Agricultural Development Project (Cr. 541-IN, effective August 1975), which supports minor irrigation development in a portion of the state, one of the major constraints was identified as a lack of effective agricultural extension. Consequently, the project included a component to strengthen extension in six districts along the principles established in the Chambal and Rajasthan Canal Areas. The initial impact of extension reorganization was so favorable that the state decided to expand the coverage. This was provided in Cr. 690-IN, for US$12 M, effective August Initially the project was highly promising: 2,400 multipurpose workers were transferred from the Community Development Department to control of DOA and were trained in the dissemination of specific messages for the farmers and, together with DOA technical staff, worked with farmers in identifying and solving field problems. In the latter part of 1977, however, a new Government of West Bengal (GOWB) suspended its earlier decision to place

9 - 5 - the Village Extension Worker (VEW) under the administrative control of DOA pending a thorough review. This drastically reduced the ability of VEWs to visit farmers regularly, and extension operations came to a virtual halt in most of the state. In October 1979, however, the GOWB has re-established the single line of command, placing all extension staff under DOA, thus removing the major obstacle to project implementation. The tempo of work has now picked up Under the Assam Agricultural Development Project (Cr. 728-IN, for US$8.0 M, effective September 1977), Assam became the third state in the eastern region to reorganize its extension service. The project now covers all of the approximately 1.9 M farm families in Assam's plains districts. In the first districts covered, improved farm practices such as transplanting in lines, use of HYV paddy, increased area and higher yields of HYV wheat and paddy, and increased consumption of fertilizers resulted. In the more recently covered districts the effects of extension work are starting to be seen Under the Bihar Agricultural Extension and Research Project (Cr IN for US$8 M, effective May 1978), through a reorganization of existing staff, some 9,000 VEW would reach all of Bihar's 7.6 M farm families. However, very little progress has been made so far with the reorganization. The posts of Director of Agriculture and Additional Director of Agriculture (Extension) remained vacant and the extension system is operating in only 5 of 31 districts. The persistent delay by the Government of Bihar in filling key posts and general commitment to the project is of great concern The most recent extension project, the Composite Agricultural Extension Project (Cr. 862-IN for US$25.0 M) became effective in December Under this project, the governments of Gujarat, Haryana and Karnataka would undertake the reorganization of extension services in their states. The project also includes strengthening the capability of the Directorate of Extension of the Government of India (GOI) in order that it may assist all states in the implementation and operation of the reorganized extension system. All three states have made a good beginning, though the project is in its early stages The beneficial results of the system are not being achieved with equal success in all areas due to local problems. The decision to transfer control of considerable number of multipurpose extension workers to the Department of Agriculture and assign them to work exclusively on agriculture requires a major political commitment and reorganizational efforts. It has been difficult for some state governments to make this decision and maintain it once made. In addition, the absence of timely financial sanctions, tardy staff recruitment, and protracted procurement of vehicles and equipment have sometimes slowed progress although these problems have now been overcome in most states. Encouraged by the impact which the Training and Visit system of extension is having in areas where it has been successfully operating, GOI is seeking to bring about similar reorganization throughout all states in India. The GOI Directorate of Agriculture Extension (DAE) has taken the initiative to help states overcome initial difficulties. Although these projects are demanding in terms of IDA supervision, their great potential for sustained increases in food production and improved incomes for the rural sector justifies continued IDA participation.

10 -6- Agriculture in Kerala 1.17 Kerala, located in south-west India, is a narrow coastal strip, bounded on the east and south by Tamil Nadu, on the north-east by Karnataka and on the west by the Arabian Sea (See Map 14690). The State is about 580 km. long and not more than 120 km. wide. It can be divided into three parallel topographical zones running north-south: (a) the sparsely poiulated highlands on the eastern border (173 persons/km ) with tea, coffee, cardamom and rubber as the main crops; (b) the low-lying coastal belt oe the west, very densely populated (1,385 persons/km ) where rice and coconut are the main crops with a wide variety of other minor crops; and (c) the midlands, between the coast and the highlands, with varied terrain of small valleys anj hills, fairly high population density (778 persons/km ), and a wide variety of crops, including rice, tapioca, banana, ginger, pepper, arecanut, cashew, coconut and rubber Kerala's temperatures are not extreme, with the mean minimum ranging from C and the maximum from C. Kerala receives a very high annual rainfall (3000 mm.) from two monsoons: the south-west monsoon from June to August and the north-east monsoon from October to December. The rainfall is more evenly distributed throughout the year than in most of India and its year-to-year variation is less The State is divided into 11 administrative districts. The total population in 1271 was about 21.3 million and the total geographical arpa is about 39,000 km, giving an average population density of nearly 550/km, the highest of any Indian state and about three times the all-india average. Per capita income in 1974/75 was about Rs. 883 with agriculture providing some 60% of total state income. The high population density has led to a farm size which is very small even by Indian standards. There are some 2.8 million families with farms covering an area of 1.6 million hectares. This implies an average farm size of 0.57 ha. But some 18 percent of these families operate less than 0.04 hectares and another 38 percent operate less than 0.25 hectares. These two groups constitute 56 percent of the farmers but less than 9 percent of the area. Many of these very small farms are really garden plots and house sites whose owners hold other jobs and cultivate them only part time. Considering this, the number of families for which farming is a serious occupation would probably not exceed 2.5 million. Kerala's climate allows the cultivation of high value perennial crops. The climate also permits the relatively high cropping intensity (137 percent) in spite of the low proportion of area irrigated (11.5 percent) The varied terrain and high rainfall permits a varied cropping pattern and a mix of perennial and field crops unique in India. Still, as the following table shows, nearly 70 percent of the cropped area is devoted to the three major crops of paddy, coconut, and tapioca.

11 -7- Paddy 31.3% Pepper 4.0% Coconut 25.5% Other spices 2.5% Tapioca 11.8% Tea and Coffee 2.8% Rubber 7.7% Pulses 1.3% Fruits 4.4% Other oilseeds 1.7% Cashewnut 4.1% Other crops 2.9% Kerala is the major Indian producer of several important agricultural commodities, notably pepper (94 percent of India's production), rubber (94 percent), cashewnut (80 percent), coconut (66 percent), cardamom (62 percent), and ginger (53 percent). The variety of Kerala's cropping pattern is reflected on most farms, with farmers usually growing several crops: it would be quite typical for one farmer to grow paddy, coconut,pepper, banana and cashew While the land and climate are conducive to producing high value crops, yields of most major crops over the past decade have been stagnant or falling. Paddy yields had risen from around 1.4 tons per hectare in the late 1960s to about 1.5 tons in the early 1970s. Since then, however, yields have not risen and may even have fallen slightly, inspite of fairly rapid increases in fertilizer consumption in recent years. Coconut yields have fallen steadily since the late 1960s. Of the major crops, only tapioca has registered a yield increase, rising from about 14 tons per hectare in the late 1960s to over 18 tons per hectare in the early 1970s. Since the early 1970s, however, yields of this crop have also been more or less stagnant. Experiments in farmers' fields indicate that there is substantial scope for improving productivity in such areas as HYV paddy, fertilizer application and pest management in paddy, fertilizer use and intercropping in coconut, expansion of pulse area in paddy fallows, use of HYV in tapioca production, and area expansion and pest management in cashew. GOK is convinced that an effective, reliable extension service will be essential to achieving such increases in productivity The Bank Group is assisting the GOK in the Kerala Agricultural Development Project (Cr. No. 680-IN). Its objectives are mainly to increase coconut and pepper production, with a small cashewnut component. A Cashewnut Project, covering four districts of North Kerala, to accelerate cashew production, has recently been appraised. Under the Kerala Agricultural Development Project, a Special Agricultural Development Unit (SADU) has been set up for smallholder development and establishment of seed gardens. The activities of SADU supplement the extension services being provided by the Department of Agriculture. Agricultural Services in Kerala 1.23 Extension Services. At present most field level extension work is carried out through several special crop schemes under the Department of Agriculture, notably for paddy, coconut, pepper, sugarcane and special area development. These schemes were established around 1970/71 because GOK found that the previous sytem, which relied entirely on multipurpose Village Level Workers (VLWs) under the control of the Community Development Department, could not carry out regular intensive extension work. These special schemes generally centered on establishing a crop "unit" of about 200 to 500 hectares

12 - 8 - with an office, and two Agricultural Demonstrators (ADs) under one Junior Agricultural Officer (JAO) 1/. While this approach made an impact in the limited areas of its operation, some problems have emerged: (a) the coverage per unit is limited. Thus given the available staff, only a relatively small proportion of the State's farmers (about 10 percent) could be reached; (b) frequent regular training was not a feature of the system; (c) separate staff for different crops led to duplication of efforts by the agricultural department and high operating costs; (d) farmers, who normally grow a variety of crops, had to consult several different sources for advice; (e) the number of "units" in a district (over 60 on average) grew too large to be effectively supervised by District staff; (f) extension staff at the units lacked mobility, became officebound due to growing paper work and became input supply agents, rather than agents of technological change; (g) there was no regular systematic contact between the extension staff and the farmers. Village Level Workers also occasionallv carry out some agricultural extension work, but owing to their many responsibilities they cannot do this work regularly and are often diverted to other tasks Training. The Kerala Agricultural University (KAU), established in 1971 is the primary agricultural training institution in the State. In 1978 it awarded 78 B.Scs, 17 M.Scs and 2 Ph.Ds in agriculture and allied fields. KAU has an Institute of Agricultural Technology which offers a diploma course and can offer practical pre-service and inservice residential training in agriculture for about trainees. KAU's Extension Wing can provide preservice training to another trainees. The Department of Agriculture is represented on a Joint Training Committee chaired by the Vice Chancellor of KAU which meets to develop training programs as required. There are also three Extension Training Centers currently operating in the state, one on the KAU Campus itself, each with the capacity for training of about 150 students. At present these centers are used primarily to train multipurpose VLWs Research. Responsibility for agricultural research in Kerala rests primarily with Kerala Agricultural University and is conducted on its 23 1/ The Agricultural Demonstrator is the basic field level worker whose pay and training is roughly equivalent to the VLW/VEW. The JAO is a more senior officer who usually has a B.Sc. (Agri) and is roughly comparable to the Agricultural Extension Officer (AEO) in other states.

13 - 9 research stations located throughout the state. The main areas of work are in the paddy, coconut, pepper, cardamom, cashew, pineapple and sugarcane crops. Research is largely concentrated on the stations, although limited work is done on farmers' fields in a few villages surrounding the various research stations and university campuses. In addition there are central Indian Council of Agricultural Research (ICAR) research institutions concentrating on such areas as plantation and tuber crops. DOA and KAU staff meet twice a year in a workshop to develop the main extension recommendations. DOA is also represented on KAU's research advisory committee. These formal relationships are supplemented by numerous informal contacts. The working relationships between DOA and KAU appear to be good and productive. Proposals for strength- * ening of research activities of KAU and its links with DOA will be considered for financing under the National Agricultural Research Project (Credit 855-IN) Credit. The apex institution for short and medium-term agricultural credit is the Kerala State Cooperative Bank which works through eleven District Central Cooperative Banks and about 1550 primary agricultural cooperative societies located at the District and Village levels, respectively. The number of members, share capital, deposits and loans per society are all substantially higher than the all-india averages and are growing. Long term credit is provided by the Kerala Central Land Mortgage Bank through 33 Primary Land Mortgage Banks. Commercial Banks also provide a growing volume of credit to agriculture Input Supplies. Kerala with its small size and good transportation network is relatively well-served by its input supply system. For fertilizer there are over 6000 selling points, about evenly divided between public sector cooperatives and private dealers. Few farmers have to travel more than 3 km. for their fertilizer supplies. Plant protection chemicals are sold from about 3400 outlets. DOA is directly involved in the production of seeds and the production and distribution of seedlings. HYV paddy foundation seed is multiplied on DOA farms; nucleus seed being supplied by KAU. Registered growers, concentrated in 4 districts, multiply foundation seed to produce certified seed. DOA staff carry out field inspections and quality control tests while the Kerala Agro-Industries Corporation is responsible for seed procurement and distribution. Seedlings of coconut, cashew, and cocoa, and pepper cuttings are produced and distributed by DOA. Private dealers also are engaged in seedling production and distribution Marketing. Marketing channels for most crops are well established. Traditional channels are village fairs, village merchants, brokers and agents, wholesalers, processors, exporters and related industry. There are more than 2000 market fairs, thousands of established private traders and about 100 cooperative primary marketing societies. II. THE PROJECT A. General Description 2.01 The project seeks to achieve early and sustained increases in agricultural production throughout Kerala's eleven districts through the

14 reorganization and strengthening of the extension service of DOA. The project would support this reorganization over a five-year period by: - establishing a single line of command between full-time village extension workers (VEWs) and extension headquarters; - consolidating staff from the special crop schemes into a single unified service; - incorporating regular in-service training as an integral part of extension activities; - introducing a systematic fixed schedule for regular and frequent visits by VEWs to farmers' fields; - improving the working linkages between extension operations and agricultural research activities; - developing regular monitoring and evaluation procedures; and - providing additional staff, operating expenses, equipment, vehicles, training facilities, and rural housing required to implement these reforms. B. Detailed Features The Extension Methodology 2.02 Under the project Kerala's agricultural extension service would be reorganized and intensified throughout the state, following the Training and Visit pattern adopted in other Indian states over the past 2-3 years. The project would systematically and regularly provide farmers with up-to-date advice on farming practices best suited to their specific conditions and emphasizing proven practices which have an immediate impact on income. This would be brought about by organizing extension field staff so that they visit farmers regularly and receive systematic training and technical support from DOA and from research institutions. Each Village Extension Worker (VEW) would be assigned to work with a number of farm families. The number would vary widely depending on local conditions, population density, cropping intensity and accessability. In most parts of Kerala, road communications are good, and this combined with greater literacy (60%, twice the all-india average of 29.4%), should permit a higher than normal farr-family: VEW ratio. Moreover, as para 1.25 points out, available statistics probably overstate the number of farm families in Kerala. Consequently in Kerala initially one VEW would cover about 1,200-1,300 farm families on an average with the actual number varying from around 600 in the sparsely-populated mountains to about 1,500 in a few densely-settled coastal areas where coconut is virtually the only crop and communication is very good Contingency provision is made to provide for 250 additional VEWs if in the course of project implementation GOK and IDA determine that more intensive coverage by VEWs is warranted. An assurance was

15 obtained during negotiations that GOK and IDA would review progress of project implementation within two years of the date of project agreement to determine if the number of field staff (VEW) should be increased To reach his farmers systematically, the VEW would divide them into 8 smaller groups each of about He would visit each group regularly on a fixed day of the week in a two-week cycle. During his visit, the VEW concentrates his efforts on about 10 contact farmers selected from each group, involving as many other farmers as possible. By the concrete results he achieves with contact farmers, the VEW can spread his recommendations more effectively to all farmers. During each visit the VEW would concentrate his efforts on only a few strategically-selected recommendations relevant for that particular phase in the crop cycle. Initially the emphasis would be on low cost improvements which the majority of farmers can afford. The VEW would be supervised and helped in his work by an Agricultural Extension Officer (AEO), who would usually hold a B.Sc. degree in agriculture. 1/ One AEO would normally be responsible for about 5-8 VEWs and would spend at least four days a week visiting them in the field. Once in each two-week period VEWs would receive a full day of intensive training in recommendations for that period. Thus every two weeks VEW would spend eight days in visiting each of his eight groups and one day in training. One day might be spent by the AEO meeting together with all his VEWs in the field or at headquarters to review progress and identify topics to be raised at the next training session. The remaining working days in the two week cycle would be devoted to field trials, making up missed visits and occasional but limited office work To provide regular training, continuous technical guidance and supervision of field work, three or four agricultural subdivisions would be established in each district under the charge of a Subdivisional Agricultural Officer (SDAO), who would have full time responsibility for supervising 8-10 AEOs in his area and ensuring effective extension operations. When there are more than 10 AEOs in a subdivision, he will be assisted by an additional SDAO. The SDAO would have a technical staff of four Subject Matter Specialists (SMS) (one each in agronomy of field crops, agronomy of tree crops, plant protection, and training/communications). SMS would spend one-third of their time in training groups of VEWs once each fortnight (para 2.06), one-third of their time in field visits providing technical support and guidance to VEWs, and one-third of their time in building their own stock of knowledge through a regular dialogue with research workers, carrying out simple field trials in farmers' fields, and attending short training courses. At the district level, a team of three SMS would be established to provide greater depth of support to SMS teams at the subdivisional level and/or to cover specializations not covered by those at the subdivision. They would also divide their work between teaching, field visits and gathering knowledge. The Principal Agricultural Officer (PAO) in charge of the District will have direct responsibility for extension operations throughout his District. To free the PAO for frequent field visits so necessary to review extension operations effectively, one Assistant Deputy Director of Agriculture would take over responsibility for reporting on scheme implementation, attending coordination meetings at district level, regulatory functions, and input supply arrangements. He would be assisted by about circle offices 1/ In Kerala AEOs are referred to as Junior Agricultural Officers (JAO).

16 located strategically throughout the district and each staffed by a Junior Agricultural Officer and two Agricultural Demonstrators to carry out these non-extension related duties and to free extension staff so as to enable them to concentrate all their efforts on extension. Staff at DOA headquarters would also be reorganized and strengthened to provide more effective support to field operations (para 4.02). Incremental Staff Requirements 2.05 Staff required to implement this reform would be met by redeploying staff already with DOA, transferring staff from the Community Development Department, and hiring new staff. Detailed breakdown of staff requirement and availability by year, district and subdivision are given in Annex 1, tables 7 and 8. The table below summarizes staff available and required by category. As the table indicates some 1,952 VEWs are required. This requirement would be met by redeploying about 1,150 field staff already with the DOA, merging them with 172 VLWs to be transferred from the Community Development Department and hiring about 630 new recruits. Before negotiations GOK issued a government order transferring 172 VLW positions from the Community Development Department (CDD) to DOA and sanctioning 630 new extension positions in DOA to complement the extension staff transferred from CDD. EXTENSION STAFF REQUIREMENTS Total required Number available Incremental Requirement VEWs 1,952 1, AEOs SMS (SUB) SDAO SMS (DIST) PAO SMS (HQ) JDA (OP) ADA (EXTN) AD (INPUTS) JAO (INPUTS) ASST. DY. DIR. (INPUTS) ASDAO Adequate staff already exist at the AEO level. New posts would have to be created and filled up by GOK for 630 VEW, 110 subdivisional SMS, 11 ASDAO, 36 SDAO, 13 District SMS, 9 PAO and 4 headquarters SMS. The extension service would be directed in its day-to-day operations by a full time Additional Director of Agriculture who would work exclusively on this job. Assurances were obtained during negotiations that the VEWs would be used exclusively for agricultural extension and that their emoluments, benefits and promotional prospects would not be adversely affected as a result of the reorganization. Further details are given in Annex 1, Table 8.

17 Training 2.06 The project would support a variety of in-service and pre-service training programs for extension staff. The most important of these are outlined in Annex 2. Central to the entire extension approach and an integral part of it is the fortnightly training session during which VEWs would be trained in groups of about 30 by subdivisional SMS, assisted by the AEO and drawing on the district SMS as well as specialists from nearby research stations. The entire training effort would be focussed on making these fortnightly sessions as effective as possible. Training would be practical and concentrate only on the few specific recommendations relevant to farming operations in the coming fortnight. Ample time would be provided for VEWs to carry out the recommendations and to practice how they would convince farmers to adopt them. They would also have an opportunity to raise and discuss problems encountered in the past two weeks. On alternate weeks VEWs would meet with their AEOs to review progress. Other in-service training courses for VEW include a pre-season workshop/training session for each major season and about one special short course per year on a particular technical topic Newly recruited VEWs would receive an intensive 6 month pre-service training course. For this purpose, one of the three Extension Training Institutes, currently under the Community Development Department, would be made available to the Kerala Agricultural University (on whose campus it is now located). With this facility, KAU would be able to train at least 150 newly recruited VEWs at a time, or 300 each year. This would be sufficient to fill new posts created during the first three years of the project and fill vacancies arising from retirement, transfer, etc. GOK has specified the number of trainee places available at the institution. An assurance was obtained during negotiations that the proposed staffing arrangement, the proposed training curriculum and time schedule would be agreed with IDA by September 30, Higher level staff would require a range of training programs as well. Each month SDAO would meet with SMS and AEOs for a one-day training and planning session during which the main points of emphasis and schedule of activities for the coming two fortnights would be determined. Before preseason training of VEWs, similar sessions would be held at the district level for AEOs. Also before each season there would be a workshop at the zonal research station and attended by PAOs, SDAOs and SMS. During this session, research workers at the zonal station together with DOA staff would review the previous season's research results, specify recommendations and plan the coming season's research and field trials programs (paras ) Improving the training of SMS is crucial to the success of the project. One primary vehicle for this would be a monthly workshop held at the research station designated in each zone for this purpose. The workshop would be attended by all SMS in the zone together with KAU staff, and headquarters SMS. The main objective is to review results achieved, modify recommendations as necessary to suit prevailing field conditions, review findings and progress of field trials and develop suggestions for future research topics and field trials. In addition, special short-term practical courses in production

18 technology and extension methods would be organized for SMS both at KAU and at all-india institutions. A limited number of scholarships at KAU would be provided for DOA staff who perform well. Before the introduction of the extension system in a given district, an orientation course of about three to four days duration would be organized by senior DOA staff. This would explain the new system and its procedures in detail, assist district staff in designating geographic areas of responsibility for VEWs, demonstrate by example how contact farmers should be selected, and outline major initial impact points. Further details are given in Annex 1, Table 4. Housing 2.10 Under the reorganized extension service, extension workers would be required to make regular and frequent visits to their farmers' groups. Consequently it is necessary for them to live in or near their areas of work. GOK provided assurances at negotiations that VEW and AEO would live in or near the areas assigned to them and to this end would provide such low cost housing or rent allowances as necessary. Since housing is difficult to find in some areas of Kerala, the project would provide housing for about 25% of VEWs and AEOs. An assurance was obtained during negotiations that GOK would furnish to IDA, at regular intervals (through DAE), information on progress in locating sites for housing to be financed under the credit. Details are given in Annex 1, Table 2. Transport 2.11 Effective extension requires a high degree of mobility both to enable field level staff to meet farmers regularly and to enable technical and supervisory staff to make frequent personal visits in order to provide the direct guidance needed. The entire system depends on a high degree of personal contact between all levels of the extension hierarchy. To facilitate this, the project would provide various modes of transport for different levels of staff. VEWs would be provided loans on attractive terms to purchase bicycles. Similar loans would be provided to AEOs and SMS to purchase scooters or motorcycles. Assurances were obtained during negotiations from GOK that loan terms and conditions and travelling or mileage allowances would be sufficient to ensure the purchase and use of these vehicles. The project would also provide four-wheel drive vehicles at subdivisional and district levels, and a limited number of trucks for use in the district and sedans at district and headquarters levels. Details are given in Annex 1, Table 3. Equipment 2.12 The project would provide simple dependable audio-visual equipment to support the training sessions and to enhance field operations. Emphasis would be on low-cost, simple aids such as charts and flipcharts which extension staff can design themselves and modify to fit local conditions. The Farm Information Bureau would assist the extension service by using its existing printing and photographic equipment supplemented by equipment provided under the project. Furniture and office equipment would also be provided as necessary. Details are given in Annex 1, Table 3.

19 Operating Expenses 2.13 DOA's operating expenses would increase with the implementation of this project. Of particular importance would be the availability of funds and materials for printing diaries, field note books, charts and instructional materials, materials for practical demonstrations at training sessions, seeds and other inputs for field trials and materials for preparing simple visual aids. Adequate funds would also be provided for incremental vehicle operating costs and travel allowances. Further details are given in Annex 1, Table 6. Monitoring and Evaluation 2.14 The project would provide for the establishment and operation of a monitoring and evaluation system specifically designed to provide project management with current information on the effectiveness of the extension system. The methodology used would be similar to that described in World Bank Staff Working Paper No. 272 "A System of Monitoring and Evaluation Agricultural Extension Projects". This system would supplement direct personal supervision by each level of project management (paras ). Details of staffing are given in Annex 1, Table 5. Assurances were obtained during negotiations that GOK would undertake monitoring and evaluation in a form acceptable to IDA and that results would be forwarded (through DAE) to the Association at least once a year. III. COST ESTIMATES AND FINANCING A. Cost Estimates 3.01 Detailed cost estimates, based on incremental costs for carrying out the project over a five year period are given in Annex 1 Tables 1 to 6. The following table summarizes the costs: Category Rs Million US$ Million % Foreign Local Foreign Total Local Foreign Total Exchange Incremental Staff Costs Civil Works Equipment and Vehicles Training Incremental Operating Costs Total Base Cost Physical Contingencies Price Contingencies TOTAL PROJECT COST

20 These costs include about US$0.9 million in duties and taxes and an estimated US$1.7 million in foreign costs. Physical contingencies of 5% have been applied to civil works, equipment training, and operating costs and to meet the future need of 250 VEW (para 2.02) to readjust farm families - VEW ratio. Price contingencies have been applied in accordance with current Bank estimates of expected inflation rates in India (1980: 10%; : 7% p.a.; 1984 and onwards: 5%) and compounded accordingly. B. Proposed Financing 3.02 Finance to cover total project costs of Rs M (US$15.3), including contingencies, would be provided as follows: Source Amount Percentage US$ Million IDA GOK/GOI Total The proposed IDA Credit of US$10.0 M would be to GOI on standard terms and conditions and would finance about 70% of project costs, net of taxes and duties, but including estimated foreign exchange costs of US$1.7 M. IDA funds would be channeled through GOI to GOK in accordance with GOI standard arrangements for IDA assisted state development projects. The balance of project financing, beyond IDA financing, would come from state government sources and GOI. GOK has made adequate budgetary provision for the operation of the first project year. C. Procurement 3.03 The main items to be financed are: vehicles including cycles and motorcycles; equipment; houses for VEW and AEO; training; project monitoring; incremental staff; and incremental operating costs. Civil work contracts (US$2.9 M), for 582 houses, would be small and dispersed, both geographically and over time; therefore, they would not be satisfactory for international competitive bidding. Contracts would be awarded on the basis of competitive bidding following local advertisement. There are numerous qualified local contractors to carry out such work. Arrangements for preparing tenders and overseeing construction were discussed during negotiations. All contracts for civil works, vehicles, equipment and furniture estimated to cost $100,000 or more would be reviewed by IDA both before bids are invited and contracts awarded motor vehicles (US$0.9 M) of various types would be required under the project. They would be purchased in small quantities over five years and would be widely dispersed in rural areas. As adequate maintenance and availability of spare parts would be of paramount importance, this would

21 necessitate purchase of locally made vehicles of types already used by government departments. Thus, procurement would be according to existing government procedures, which are satisfactory to IDA, Motorcycles and bicycles (US$0.4 M) would be purchased by individual staff from loan funds provided by state government; they would be expected to repay the purchase price Orders for purchase of minor equipment and furniture (US$0.3 M) would be bulked wherever possible and purchased according to established local bidding procedures, except where valued at less than US$50,000 when they would be purchased by prudent shopping through normal trade channels. Assurances on procurement procedures mentioned in paras were obtained during negotiations The balance of project costs (US$7.2 M) would consist of local training and fellowships (US$0.6 M), incremental salaries and allowances (US$3.98 M), monitoring and evaluation (US$0.32 M), and incremental operating expenditures for offices and vehicles (US$2.3 M) which would not involve procurement. All of the above figures exclude contingencies which amount to US$3.6 M. D. Disbursement and Audit 3.07 Disbursement under the Credit would extend over five years and would be made against: (a) 80% of the cost of civil works and equipment and vehicles, and 100% of the cost of training; and (b) 45% of the total eligible staff costs 1/. The percentage is calculated to bring total IDA disbursements to about 70% of the project cost Disbursements against expenditures for training, for locally procured vehicles and equipment costing Rs 150,000 or less, payments under civil works contracts for one or more progress payment(s) not exceeding Rs 300,000 and for item (b) above would be against certified statements of expenditures, the documentation for which would not be submitted to IDA for review but would be retained by GOK and DAE. These documents would be available for inspection by IDA during the course of project review missions. Disbursement against all other items would be fully documented. Certificates of expenditures would be audited by GOK internal departmental auditors at least once every six months and a report submitted to IDA promptly thereafter. All disbursement applications would be forwarded and processed through the Department of Economic Affairs. Schedules of implementation and project disbursements are presented in Annex 3, Tables 1 and 2. 1/ Total extension staff costs eligible for partial disbursement would be the following: VEW, JAO, ASDAO, SDAO, SMS and PAO at village, sub division, district and state levels and staff of monitoring and evaluation unit.

22 Assurances were obtained during negotiations that separate accounts would be kept of expenditures made under the project. These would be audited annually for each fiscal year, in accordance with sound auditing principles consistently applied. Accounts would be submitted for audit within six months of the end of the financial year, audited not later than 9 months after the end of each such year, and the audited reports submitted to IDA promptly. Such reports and audits of certificates of expenditure would show, inter-alia, that the funds withdrawn were used for the purpose intended, that goods have been received or work performed, and that payments have been made. All reports would be submitted by GOK to the Department of Economic Affairs for onward transmission to IDA. IV. ORGANIZATION AND MANAGEMENT Extension Service 4.01 The project would introduce fundamental improvements in the organization and management of extension operations in Kerala. By establishing a single line of control from extension headquarters to VEWs (see chart for the organizational pattern), field level staff become directly accountable to their supervisors both technically and administratively. Each would follow a fixed schedule of visits to specific groups of farmers, which is known to farmers. Each AEO would supervise about 5-8 VEWs, spending at least four days a week in the field assisting and guiding them. The 36 SDAOs provided under the project would each be responsible for ensuring that the 8-10 AEOs in their respective subdivisions are working effectively. To do this, SDAOs would need to spend about 5 days a week in the field, including attending fortnightly training sessions. Where the number of AEOs exceeds 10 an ASDAO will assist the SDAO. SMS at the subdivision provide essential technical support as described in para SDAO is directly responsible to the District PAO. Normally a PAO would have three or four SDAOs in his charge The DOA headquarters organization would be streamlined to provide effective management and technical support to the extension service as a whole. The three existing Additional Directors of Agriculture (one each for food crops, commercial crops and planning) would be redesignated so that there would be one ADA (Extension), one ADA (Input Supply and Logistics) and one ADA (Planning, Monitoring and Evaluation). While overall responsibility for general agricultural development in the state rests with the Agricultural Production Commissioner (APC) and the Director of Agriculture, the ADA (Extension) would be responsible for the day-to-day operations and management of the extension service both technically and administratively. Subject to the policy directions of the APC and Director of Agriculture, the ADA (Extension) would also be responsible for training and management of extension personnel. He would visit the field frequently to check on the effectiveness of extension operations. Before negotiations GOK had redesignated one of the three existing ADA positions as ADA (Extension), appointed a suitably qualified officer to this position and given him full time exclusive responsibility for implementing the extension system with no other duties. Two Joint Directors of Agriculture (JDA) would form an operations cell to assist the ADA in this work. These two

23 JDAs would each have responsibility for certain districts and would visit their areas constantly. The ADA (Extension) would maintain close contacts with the Chief Executive, Special Agricultural Development Unit of Kerala Agricultural Development Project to ensure effective coordination and technical support. ADA (Extension) would have a technical support staff of 8 SMS at headquarters (one each for paddy production/farm management, pulses/ agronomy, coconut and arecanut, cashews and horticulture, plant protection, spices and cocoa, adaptive research and training, and water management). These SMS would be responsible for improving the technical quality of the extension service in their areas of specialization. They would help promote linkages between extension SMS and research work being carried out in Kerala and elsewhere, develop and interpret field trials in their areas of specialization, organize training programs and serve as a clearing house of technical information. ADA (Extension) would also be assisted by a small administrative and accounting staff to help keep records of project expenditures, prepare progress reports, etc. Input Supplies 4.03 ADA (Input Supplies and Logistics) would be responsible for regulatory functions, implementation of plan schemes, input supply, departmental farms and for soil testing, plant protection and seed certification. At headquarters he would be supported by 10 Assistant Directors of Agriculture and 6 Technical Assistants drawn from existing staff. He would function through the Assistant Deputy Director of Agriculture at the District level who would free the District PAO from these duties. The 11 Assistant DDA's in the district would operate through 125 circle offices each with a staff including one JAO and two Agricultural Demonstrators. This public sector network would supplement the already substantial network of private and cooperative input supply points. State Level Coordination 4.04 Coordination at State level between extension, research and allied agencies would be ensured through establishment of a Project Coordination Committee. The Committee would be chaired by the Agricultural Production Commissioner and would include the Vice Chancellor of KAU, representatives of concerned government departments, and other agencies (Finance, Irrigation, Cooperation and input agencies). The Director of Agriculture would act as Secretary to this Committee. The Committee would meet at least twice a year to review progress in project implementation and to resolve any problems that may arise. An assurance was obtained during negotiations that such a committee will be established and hold its first meeting before December 31, Linkages between Extension and Research 4.05 As neither research nor extension can function without close cooperation it would be necessary to formalize their responsibilities. A clear definition of responsibilities is emerging wherein the Kerala Agricultural University would be made fully responsible for the development of suitable new technology while the Department of Agriculture would assume responsibility for transfer of technology to farmers, including widespread testing of research recommendations on farmers' fields. The commodity research programs of KAU and of ICAR would

24 continue to identify and select improved varieties of important crops, and also identify economically appropriate practices directed to substantially increasing crop production and, at the same time, lowering farmers' risk. Selected varieties and production practices would then be tested at zonal research stations, seed farms, and on farmers' fields located in different agroclimatic regions. KAU staff would work closely with district and subdivisional extension staff, specially SMS, as much of the work at zonal stations would be in response to the needs of local extension staff and farmers. The extension staff would work with research workers in carrying out a program of field trials and analysing and interpreting the results. Research workers would take responsibility on a monthly basis for SMS training at the zonal level in order to prepare them for the fortnightly training of VEW and AEO. Assurances were obtained during negotiations that GOK and KAU would review (by January 31, 1981) and, where appropriate, strengthen arrangements for closer cooperation Strengthening of arrangements for close coordination between KAU and DOA would also be promoted through State and District level technical committees (paras 4.07 and 4.08) The State Technical Committee (STC). This Committee would be chaired by the Director of Agriculture and comprise senior officers of KAU and DOA. The Additional Director of Agriculture (Extension) would be the Secretary. STC would meet twice every year and provide a formal mechanism for review of university research and field trials, and for review of future research programs and extension recommendations from District Technical Committees District Technical Committees (DTC). Each Committee would be chaired by the Principal Agricultural Officer (PAO) and comprise district field staff, SMS and regional agronomists of KAU and farmers' representatives. The DTC would meet twice every year to review and formulate recommended agricultural practices, including the identification of research priorities and adaptive research needs, for transmission to the State Technical Committee. Assurances were obtained during negotiations that STC and DTC will be established and hold their first meetings by January 31, Zonal Workshops. Seasonal zonal workshops would be chaired by the senior research scientist of KAU and meet twice a year (before the kharif and rabi cropping seasons). The workshop would include representatives from KAU and extension staff of DOA, and would discuss implications of various extension recommendations made by DTC and finalize them after considering research data and field experience The evolution of extension recommendations would be as under:

25 District Technical Committee PAO/SMS/Field Staff/Farmers/KAU Zonal Seasonal Workshop KAU/Extension Staff of Zone Reviews adaptive research and trials to propose recommendations, and suggests field trial program, based among other things on findings of monthly zonal workshops. Assembles proposed recommendations from DTC. Frames recommendations after consideration of research data and economic constraints. State Technical Committee Director of Agriculture (Chairman) ADA Extension (Secretary) Director of Research (KAU) Director of Extension (KAU) ICAR Research Complex District Technical Committee PAO/SMS/Field Staff/Farmers/KAU Monthly Zonal Workshops KAU Research Staff/SMS/SDAO/PAO Reviews proposed recommendations developed by zonal workshops. Approves on suggests modifications before returning to DTC for implementation. Adopts or rejects modifications suggested by STC. Formulates specific fortnightly recommendations. These will form the basis of fortnightly training sessions after suitable modifications by SMS at the monthly zonal workshops. Zonal workshops will modify recommendations made at preseason training to suit prevailing field conditions, review findings and progress of field trials, review training techniques and prepare lesson plans for fortnightly training. Fortnightly VEW Training Visits

26 Training. KAU would assist in providing monthly training of SMS who are responsible for the fortnightly training of VEW/AEO in the districts. PAO and SDAO also would participate (para 2.09). The duration of training may be one or two days. The training would serve the following objectives: (a) To review field developments since previous training - (i) how extension recommendations were used in VEW training, (ii) problems in extending recommendations, and (iii) problems posed by farmers in adopting them under normal and special situations like drought, epidemic attack of pest/diseases, and flood. (b) To identify clearly the most important recommendations that should be made during the next month, keeping in mind past experience and field conditions. (c) Listing field problems posed by farmers and field staff and discussing them; ensuring that such problems which cannot be solved during discussions in the workshop are taken up with KAU for solution and further study. Monitoring and Evaluation 4.12 The Additional Director of Agriculture (Planning, Monitoring and Evaluation) at headquarters would have responsibility for monitoring and evaluation. He would be assisted by a Director and other staff. The monitoring and evaluation unit would report directly to the Agricultural Production Commissioner. Farm Information 4.13 The ADA (Extension), through the SMS (adaptive trials and training), would draw on the services of the existing Farm Information Bureau to produce pamphlets, charts, posters and other training aids as needed. V. BENEFITS, JUSTIFICATION AND RISKS 5.01 Financial Benefits. Total project costs over the five year development period, excluding price contingencies amount to US$11.7 M which is US$7.3/ ha of cropped land or US$4.7 per farm family, assuming 2.5 M farm families. Incremental costs after the project development period, to be met from State budget sources, would be about US$2.0 M per annum or US$0.8 per farm family. Incremental costs would be partly recovered through market levies on agricultural produce entering commercial markets. Stimulation of demand for agricultural inputs would also increase state revenues from sales taxes on these items Economic Benefits. Attributing a precise level of benefits to this type of project is difficult since it is not possible to determine what proportion of benefits are due to extension alone and what are due to additional purchased inputs and other factors. In practice, it is the combination of a

27 number of factors, with extension playing the role of catalyst, that brings the desired benefits. It is also difficult to estimate acceptance rates of recommended practices. However, since the project relies primarily on reorganization and strengthening of an existing extension structure, the incremental cost is low per hectare and per farm family. Hence, even very small and slow production increases in the project area generate a high rate of return. This project would be able to generate a 50% rate of return if, by 1987, yields of foodgrains (which cover only 31% of cropped land area) increase by only 12 kg/ha, and per hectare yields of coconut and tapioca (the other main crops) increase by only 10%. Yield increases have far exceeded this level where the extension system is operating effectively for a few years. One significant feature of the system is that the practices initially stressed by the extension service focus on improving cultural practices (timely operations, good land preparation, proper seed rates, line sowing and weeding) to maintain adequate and healthy plant population over unit area cultivated. As these operations usually involve more work and little cash outlay, they are particularly well suited to the needs of small farmers Project Risks. The transfer of multipurpose field workers and establishment of a single, unified professional extension service marks a major departure from past practice in India. The fact that such a reform is under way in large parts of the country reflects a willingness to develop an extension system capable of serving all farmers well. Nevertheless, it is difficult for governments to make and maintain such decisions. The main risk, therefore, is that the state government would find it difficult to maintain a single line of command from extension headquarters to the VEW who work exclusively on agriculture. In this project these risks are low because only a small proportion of field staff (10%) are to be transferred from another department. To reduce these risks further, efforts were made during project preparation and appraisal to ensure full understanding of the importance of this by the Kerala State Government. An assurance would be obtained during negotiations, that VEWs would remain as full time agricultural extension workers under the Department of Agriculture throughout the project period, and that their seniority, promotion, prospects, emoluments and other benefits would be protected Experience has shown other risks to be minimal. Farmers responsiveness to recommendations has been generally excellent wherever visits are made systematically. In addition, VEW have gained confidence in their own professional ability to introduce small innovations. The ability of the service to develop and disseminate recommendations leading to yield increases well above the level needed for a 50% return has been demonstrated adequately. Initially, in most situations, availability of suitable technology for different conditions has not been a constraint as there is a backlog of research findings as yet not widely adopted. Major yield increases are possible even in the process of bringing the production level of average farmers to that of best farmers. To reduce the risk of technological constraints lowering anticipated project benefits, the project supports programs of field testing of research results and development of good working relationships with Kerala Agricultural University. A separate project, National Agricultural Research Project (Credit 855- IN), is directed at strengthening research facilities at the Agricultural University to ensure a continuous flow of recommendations adapted to specific regional problems.

28 VI. AGREEM4ENTS REACHED AND RECOMMENDATIONS 6.01 At IDA's request GOK had taken the following actions before credit negotiations: (a) Issued a government order transferring an agreed number of VLW positions from the Community Development Department (CDD) to DOA and sanctioned an adequate number of positions to DOA to complement the extension staff transferred from CDD (para 2.05); (b) Specified the training institution and number of trainee places available for pre-service training (para 2.07); (c) Made adequate budgetary provision for the operation of the first project year (para 3.02); and (d) Redesignated one of the three existing ADA positions as ADA (Extension), filled this position by a suitably qualified officer, and assigned to him full time responsibility for implementation of the project, so that he will have no duties other than day to day management of the extension service (para 4.02) During negotiations, assurances were obtained from the Government of India and the Government of Kerala on the following matters: (a) By May 31, 1982, GOK and IDA would jointly review progress of project implementation to determine if the number of field staff should be increased (para 2.02); (b) GOK would fill incremental staff positions according to or earlier than the schedules shown in Annex 1, Table 8 (para 2.05); (c) GOK would ensure that all extension positions assigned to the administrative control of DOA under this project would be used exclusively for agricultural extension and retained under the administrative control of DOA during project execution (para 2.05); (d) GOK would ensure that staff assigned to carry out extension work under the project would not be adversely affected, in respect of their entitlement to emoluments, benefits and promotional prospects by reason of the assignment, (para 2.05); (e) GOK and IDA would agree by September 30, 1980 regarding the staffing arrangement in the VEW training institution, the proposed training curriculum and schedule of training;

29 (f) GOK would ensure that VEW and AEO would live in or near the area assigned for their operations and, to this end, shall provide to these workers such rental allowances or housing as may be necessary (para 2.10); (g) GOK would furnish to the Association, through DAE, at regular intervals, all such information as the Association shall reasonably request concerning the progress in locating sites for houses to be financed out of the proceeds of the credit (para 2.10); (h) GOK would ensure that credit and travelling allowances would be made available to staff on such terms and conditions designed to create incentives for the purchase and use of motorcycles and cycles (para 2.11); (i) GOK would undertake monitoring and evaluation of the project in the form already agreed with the GOI. Further, GOK would forward to IDA (through DAE) a yearly summary of results in a form acceptable to IDA (para 2.14); (j) GOK would prepare and present to DAE for transmission to IDA, administrative and financial data regarding progress of project, including procurement of goods and services, civil works, expenditures, audit and requests for disbursements in accordance with the time schedules to be agreed to at negotiations (para 3.09); (k) GOK would by January 31, 1981 review and, where appropriate, strengthen arrangements for close cooperation between DOA and KAU and thereafter, from time to time as the Association shall reasonably request, discuss with the Association the adequacy of said arrangements (Para 4.05); (1) GOK would establish a Project Coordinating Committee which would hold its first meeting by December 31, 1980 (para 4.04); and (m) GOK would establish a State Technical Committee and District Technical Committees. These Committees would hold their first meeting by January 31, 1981 and thereafter meet at least twice a year (paras 4.07 and 4.08) With these conditions and assurances the project would be suitable for a Credit of US$10.0 M to GOI on standard IDA terms.

30 INDIA ANNEX 1 Table 1 KERALA AGRICULTURAL EXTENSION PROJECT SUMMARY OF PROJECT COSTS (Rs '000) Foreign Exchange Cost Category Year 1 Year 2 Year 3 Year 4 Year 5 Total % Cost INCREMENTAL STAFF COSTS - Base Cost 1, , , , , , Physical Contingency a/ , , , Price Contingency b/ , , , ,321.7 TOTAL 2, , , , , , CIVIL WORKS - Base Cost - 8, , , , Physical Contingency c/ , Price Contingency b/ - 1, , , ,512.8 TOTAL - 10, , , , EQUIPMENT & VEHICLES - Base Cost 5, , , , Physical Contingency c/ Price Contingency b/ ,803.3 TOTAL 5, , , , %-/ 4,529.7 INCREMENTAL OPERATING COSTS - Base Cost 1, , , , , , Physical Contingency c/ Price Contingency b/ , , , ,067.5 TRAINING TOTAL 1, , , , , , % 8, Base Cost , , , , Physical Contingency c/ Price Contingency b/ ,168.8 TOTAL TOTAL , , , , , % Base Cost 9, , , , , Physical Contingency , , , Price Contingency b/ , , , , ,874.1 GRAND TOTAL 10, , , , , , ,682.0 a/ Calculated as staff salary of 250 VEW in last 2 years only for additional VEW if needed after a mid term review. b/ Inflation rate: applied cumulatively at 5%, 13%, 22%, 30% and 38% respectively for project years 1 through 5. c/ Physical contingency calculated at 5%. d/ Weighted average of vehicles (25%) and equipment (40%).

31 INDIA KERALA AGRICULTURAL EXTENSION PROJECT CIVIL WORKS (Rs '000) Housing Area Cost Unit Year 1 Year 2 Year 3 Year 4 Year 5 Total Qty (M2) (Rs/M2) Cost (No.) Cost (No.) Cost (No.) Cost (No.) Cost (No.) Cost Cost VEW (176) (162) (150) ,861.6 AEO (34) (30) (30) ,869.2 TOTAL (Excluding contingencies) b ,730.8 f Physical Contingencies (5%) ,236.5 GRAND TOTAL 9, , , ,967.3 February 13, 1980 rz m fd X " H

32 INDIA ANNEX I Table 3 KERALA AGRICULTURAL EXTENSION PROJECT VEHICLES AND EQUIPMENT (Re '000) Quanr Unit Year 1 Year 2 Year 3 Year 4 Year 5 Total Type tity Cost Noe. Cost Nos. Cost Nos. Cost Nos. Cost Noa. Coat Cost VEHICLES Departmental: - Headquarters */ Sedan (3) 50.0 (3) District bl Sedan (11) 50.0 (4) (4) (3) WD (11) 60.0 (4) (4) (3) Truck (11) (4) (4) (3) , Sub Division c/ 4-WD (72) 60.0 (26) 1,560.0 (24) 1,440.0 (22) 1, ,320.0 Motorboats (4) (4) TraLning Institute 4-WD (1) 60.0 (1) Bus (1) (1) M.E. Unit Sedan (1) 50.0 (1) WD (1) 60.0 (1) Staff-Owned - V.E.W. Cycle (1560) 0.5 (564) (516) (480) A.E.C. M.Cycle (300) 6.0 (110) (96) (94) , S.M.$. M.Cycle (75) 6.0 (25) (25) (25) M.E. Staff M.Cycle (42) 6.0 (15) 90.0 (11) 66.0 (16) SUB-TOTAL 4, , , ,112.0 OFFICE EOUIPMENT & FURNITURE -Headquarter - District d/ (4) 32.0 (4) 32.0 (3) Sub Division e/ (13) (12) (ll) , A.E.O. fl (100) V.E.W (300) 90.0 (400) Training Institute (1) N.E. Unit SUB-TOTAL ,618.0 AUDIO-VISUAL AIDS - Headquarter / (1) District hi (4) 63.2 (4) 63.2 (3) Printing Facility (3) _ Sub Division i/ (13) 65.0 (12) 60.0 (11) A.E.O. 't (137) 20.5 (171) 18.2 (170) _ V.E.W. j/ (705) (647) 97.0 (600) _ Training Institute k/ _ SUB-TOTAL TOTAL (Excluding Contingency) 5, , , ,689.9 Physical Contingency 5% GRAND TOTAL , a/ Headquarters. Three cars - for SMS Team and the 2 JDAO with regional responsibilities. Five aedans and nine 4-WD vehicles already available. b/ District. One car for Principal Agriculture Officer, one 4-WD diesel vehicle for the SMS team, and one truck for transport of seeds, seedlings, etc. c/ Sub Division. One 4-WD diesel vehicle for SDAC and one for team of SMS. Two motor.boats for Allepey and Chengannur Sub Divisions each. d/ Includes one typewriter and duplicator. e/ Includes typewriter, calculator, duplicator, and office furniture. 7/ Furniture. /t Flannel boards and black-boards, tape recorder, megaphone, silk screen unit, still cameras and flash, super 8 me camera, slide projectors, overhead projector, screens, overhead projector, rear projection screen. h/ Flannel and black-boards, cassette tape recorder, cameras with flash unit, silk screen unit, slide viewers and slide projectors, overhead projector and letter press only in three districts. i/ Flannel and black-boards, tripod, screen, slide projector, overhead projector and small library. i/ Plastic binders, folding blackboard, elide viewer, insect preservation box and small library. k/ Flannel boards, blackboards, tape recorder, megaphone, super 8 mm projector, slide projector and viewer, overhead projector, screens, tripod, rear projection screen, stencil duplicator. l/ Includes purchase of 125 typewriters for circle offices.

33 INDIA KERALA AGRICULTURAL EXTENSION PROJECT TRAINING COSTS (Rs '000) / Unit Year 2 Year 2 Year 3 Year 4 Year 5 Total Type of Training- Cost (No.) Cost (No.) Cost (No.) Cost (No.) Cost (No.) Cost Cost 1. Pre-Service VEW Training 0.95b/ (300) (300) (150) Expenses for zonal workshop l.o' (72) 72.0 (72) 72.0 (72) 72.0 (72) 72.0 (72) Special short courses (VEW/AEO) 0.1 (700) 70.0 (1350) (1950) (1950) (1950) Special short courses (SMS/other staff) 1.2-' (64) 76.8 (124) (177) (177) (177) (Overseas) 40.Oe- (1) 40.0 (2) 80.0 (3) (3) Deputation of VEW for 8 o B.Sc. course (4) 32.0 (11) 88.0 (22) (22) Deputation of AEO/SMS for post grad. courses 15. A/ (20) (20) (20) (20) (20) ,500.0 n Total , , , ,056.9 Physical contingencies ( 5 %)h/ GRAND TOTAL , , , , ,309.8 a/ See Annex 2. b/ Rs 100 p.m. for stipend for 6 month course plus Rs 100 in instructional materials and Rs 250 as training fee per trainee to be paid to KAU. c/ Rs 1000 per session for materials, expenses, honoraria, for KAU staff, etc. Each month there would be 5 or 6 sessions, one in each zone. d/ Includes courses in Kerala and other states. Funds provided sufficient for one course per SMS per year. Since it is likely not every SMS will be trained every year in such a course, there is ample provision for other senior staff as well. e/ Estimated Rs 40,000 per course per trainee sent overseas. Alternatively, funds would be used to bring foreign trainers to Kerala to develop in state training programs. > > f/ One VEW per district per year, 4 year B.Sc. program. Deputation starts in Year 2 including districts covered in previous year. Cost estimate is per trainee per year. ygj One AEO/SMS per district per year; 2 year post graduate program. h/ Includes staff for 3 zonal printing presses for production of training material - 3 press operators, 3 compositor cum binders, and 3 mechanics.

34 INDIA ANNEX 1 Table 5 KERALA AGRICULTURAL EXTENSION PROJECT INCREMENTAL STAFF SALARIES AND INCENTIVES Annual Unit Cost Year 1 Year 2 Year 3 Year 4 Year 5 (Rs '000) (No.) Cost (No.) Cost (No.) Cost (No.) Cost (No.) Cost Total Cost INCREMENTAL EXTENSION STAFF Headquarters - SMS (JDA) 20.0 (4) 80.0 (4) 80.0 (4) 80.0 (4) 80.0 (4) District - PAO (JDA) 20.0 (2) 40.0 (6) (9) (9) (9) SMS (Dy.DA) 17.0 (0) - (4) 68.0 (13) (13) (13) Subdivision - SDAO (Dy.DA) 17.0 (13) (25) (36) (36) (36) , SMS (Asst.DA) 15.0 (41) (77) 1,155.0 (110) 1,650.0 (110) 1,650.0 (110) 1, , ASDAO (Asst.DA) 15.8 (4) 60.0 (7) (11) (11) (11) Field Level - VEW 6.2 (0) - (250) 1,550.0 (630) 3,906.0 (630) (630) 3, ,268.0 INCREMENTAL SUPPORT STAFF SUB-TOTAL 1, , , , , ,951.0 Headquarters - Admin. Asst (1) 15.0 (1) 15.0 (1) 15.0 (1) 15.0 (1) Accounts Off (3) 45.0 (3) 45.0 (3) 45.0 (3) 45.0 (3) Snr. Spdt (9) (9) (9) (9) (9) Fair Copy Spdt (1) 10.0 (1) 10.0 (1) 10.0 (1) 10.0 (1) Duplicator Op. 4.3 (1) 4.3 (1) 4.3 (1) 4.3 (1) 4.3 (1) P.A. to D.A (1) 15.0 (1) 15.0 (1) 15.0 (1) 15.0 (1) (SUB-TOTAL) ,031.5 District - Accounts Off (4) 60.0 (8) (11) (11) (11) Snr. Spdt (4) 52.0 (8) (11) (11) (11) Duplicator Op. 4.3 (4) 17.2 (8) 34.4 (11) 47.3 (11) 47.3 (11) Confid. Asst. 6.7 (4) 26.8 (8) 53.6 (10) 67.0 (10) 67.0 (10) Typist 6.5 (0) - (1) 6.5 (1) 6.5 (1) 6.5 (1) (SUB-TOTAL) ,760.9 Subdivision - Jnr. Spdt. 9.5 (0) - (7) 66.5 (16) (16) (16) Typists 6.5 (0) - (12) 78.0 (18) (18) (18) Drivers 5.0 (0) - (7) 35.0 (10) 50.0 (10) 50.0 (10) Peons 4.1 (8) 32.8 (33) (36) (36) (36) Duplicator Op. 4.3 (13) 55.9 (25) (36) (36) (36) Watch Man 4.1 (13) 53.3 (20) 82.0 (36) (36) (36) Circle - Typists 6.5 (45) (85) (125) (125) (125) ,282.5 (SUB-TOTAL) , , , , ,235.8 SUB-TOTAL SUPPORT STAFF , , , , ,028.2 MONITORING/EVALUATION STAFF-/ - Director M/E b/20.0 (1) 20.0 (1) 20.0 (1) 20.0 (1) 20.0 (1) Head, Sample Survey (1) Ag. Economist 17.0 (1) 17.0 (1) 17.0 (1) 17.0 (1) 17.0 (1) Statistical Clerks- 8.2 (5) - Typists 6.5 (2) 13.0 (2) 13.0 (2) 13.0 (2) 13.0 (2) Field Supervisor c 14.0 (4) 56.0 (6) 84.0 (6) 84.0 (6) 84.0 (6) Field Investigator (0) - (5) 51.0 (19) (19) (19) Head Ad. Hoc. Studies 18.0 (1) 18.0 (1) 18.0 (1) 18.0 (1) 18.0 (1) Social Scientist 17.0 (1) 17.0 (1) 17.0 (1) 17.0 (1) 17.0 (1) Res. Officers 12.4 (2) 24.8 (2) 24.8 (2) 24.8 (2) 24.8 (2) SUB-TOTAL, M/E UNIT ,573.4 TOTAL - INCREMENTAL STAFF 1, , , , , ,552.6 Physical Contingenciesd/ , ,100.0 GRAND TOTAL 1, , , , , ,652.6 a/ Titles of posts may be kept as per designations in the State for equivalent posts. b/ Posts to be filled by redeployment. c/ 17 posts to be filled by redeployment from existing staff; 19 incremental positions. d/ Calculated as staff salary of 250 VEW in last two years only for additional VEW if needed after mid-term review. March 10, 1980

35 ANNEX 1 Table 6 INDIA KERALA AGRICULTURAL EXTENSION PROJECT INCREMENTAL OPERATING COSTS (Rs '000) Annual Year 1 Year 2 Year 3 Year 4 Year 5 Unit Cost (No.) Cost (No.) Cost (No.) Cost (No.) Cost (No.) Cost Total Cost OPERATING EXPENSES & EXTENSION MATERIALS VEW/AEO 0.5 1/ (842) (1610) (2330) (2330) (2330) ,309.2 Other Staff 2/ 1.0 1/ (81) 40.5 (157) (224) (224) (224) Other Expenses 3/ 5.0 (17) 85.0 (33) (47) (47) (47) SUB-TOTAL , , , ,094.4 INCREMENTAL TRAVEL ALLOWANCES & EXPENSES VEW - Existing 4/ 0.12 (705) 84.6 (1102) (1322) (1322) (1322) New 5/ (250) 90.0 (630) (880) (880) JAO M/C allowance 6/ 0.9 (137) (258) (378) (378) (378) ,376.1 Subdivisional Staff 7/ 15.6 (13) (25) (36) (36) (36) ,277.6 District 8/ 4.2 (2) 8.4 (10) 42.0 (22) 92.4 (22) 92.4 (22) M/E Staff 9/ 2.4 (26) 62.4 (35) 84.0 (49) (49) (49) Circle Staff 10/ 1.14 (45) 51.3 (85) 96.9 (125) (125) (125) SUB-TOTAL , , , , ,699.2 RENT FOR SDAO OFFICE 4.8 (13) 62.4 (25) (36) (36) (36) VEHICLE OPERATING COSTS Subdivision (4-WD diesel) 11/ 6.0 (26) (50) (72) (72) (72) ,752.0 District - (4-WD diesel) 12/ 10.0 (4) 40.0 (8) 80.0 (11) (11) (11) (petrol sedan) 13/ 15.0 (4) 60.0 (8) (11) (11) (11) (diesel lorry) 14/ 12.0 (4) 48.0 (8) 96.0 (11) (11) (11) (boats) 12.0 (0) 0 (4) 48.0 (4) 48.0 (4) 48.0 (4) Headquarters - (sedan) 15/ 25.0 (8) (8) (8) (8) (8) , (4WD petrol) 15/ 25.0 (9) (9) (9) (9) (9) ,125.0 SUB-TOTAL , , , , ,734.0 TOTAL (Excluding contingency) 1, , , , , ,228.4 Physical Contingencies (at 5%) GRAND TOTAL 1, , , , , , / Includes printing of diaries, charts and instructional materials, sample of small implements, seeds, pesticides, etc. for field trials and training demonstrations, poster paper and paints for simple visual aids. Taken at 50% of unit cost in year 1, 75% in year 2 and 100% thereafter. 2/ Includes SMS at District and subdivision, SDAO and PAO. 3/ Calculated at Rs 5,000 p.a. for each subdivision and district office. 4/ New allowance of Rs 120 p.a. for vehicle (cycle). 5/ Rs 360 p.a. as PTA and vehicle (cycle) allowance. M6/ otorcycle mileage allowance of Rs 75 p.m. (about 10 km/day at Rs 0.35/km). 7/ Rs 250 p.m. per SDAO, Rs 175 per SMS, plus Rs 150 p.m. for drivers. 8/ Rs 350 p.m. per new PAO and District SMS. 9/ Rs 200 p.m. for all professional M/E staff. 10/ Motorcycle allowance of Rs 900 p.a. plus PTA of Rs 240 p.a. 11/ 15,000 km/yr at Rs 0.4/km. 12/ 25,000 km/yr at Rs 0.4/km. 13/ 20,000 km/yr at Rs 0.75/km. 14/ 24,000 km/yr at Rs 0.5/km. 15/ 33,000 km at Rs 0.75/km.

36 ~ C I0 0 -,- I -, 0' 2 C1 0 a W ~ ~ ~ ~ ~ -- ~ o i "' ' 0 V C (0 0 lo F a v st rl o,,,a 0* 'e C C C C C a 'Oj j4 0 a ~ ~ ~ a0'00 ~ ~ ' j CCC 4 OOC 4 C C C0C(C (0* 4*.04( XXX 4( C >' 1 Xn (0 4S A4.04 C44j, 0 CC444 4 Ia a - x d C- - 2d 1' 2 ' 24 e 2<1-4 4 z l *=1 N - 1 -C-C no lo -C C C C-C C.--C- l 0.''00. 00,oo k- N 0A I C00 - CCC 0*0V4 0. G G OCC o 4 Ca s 0 00~~~~~~~~~~~~~~~~~~~~~~~~~. o> oic4. = t A A A $.. A Aa A~ AIA. ~ e t<4 e.,ya C A.JC4~.

37 INDIA ANNEX 1 Table 8 KERALA AGRICULTURAL EXTENSION PROJECT REQUIREMENT OF EXTENSION STAFF BY YEAR Year 1 Year 2 Year 3 Year 4 Year 5 VEW: EXISTING: Yearly Cumulative NEW: Yearly Cumulative TRAINING Yearly OUTPUT: Cumulative AEO: EXISTING Yearly STAFF: Cumulative SUBDIVISION: NEW SDAO: Yearly Cumulative NEW ASDAO: Yearly Cumulative SMS: Yearly - Existing New Cumulative CIRCLE (INPUTS): EXISTING Yearly JAO: Cumulative EXISTING Yearly AD: Cumulative DISTRICT: PAO: Yearly - Existing New Cumulative SMS: Yearly - Existing New Cumulative HEADQUARTERS: SMS: Yearly - Existing 4 - New 4 Cumulative JDA (OF): Yearly - Existing 2 Cumulative ADA (EXT): Yearly - Existing 1 Cumulative

38 INDIA KERALA AGRICULTURE EXTENSION PROJECT EXTENSION ORGANIZATION irector of Agriculture Additional Director Senior Extension (8) Districts (11) District Principal Agricultural Of ficer Team Sub Divisions (36) I Sub Divisional I SMS Team Oficer fagricultural (4) A.E.O. (378) t X V.E.W. (1952) l 11w (~~~ I t11f t r 1 8 Farmers' Units 8 Farmers' Units Per VEW: 15,616 Units 10 Contact Farmers Per Unit: 156,160 Contact Farmers 'Add one Assistant PAO per District World Bank-21128

39 INDIA KERALA AGRICULTURAL EXTENSION PROJECT LINKAGES BETWEEN EXTENSION AND RESEARCH State Level Kerala Technical Agricultural Committee University 4 * 00 04~~~~ * * ++ I ~ ~ ~~~* +s I ~ ~ ~~~~~* Directorate *',', Sat tory of _ ''. Research Agriculture lcouncil l Exte~~xnsion I 'I District Levei Zonal ~~~~Regioznal Research / Committee \~~~~~orkho Station i ) Techn ical W~~~~~~ ~ ~~orksopl D istrict \ PAO... ; FireldTriaasl AEO World Bank

40 ANNEX 2 Page 1 INDIA KERALA AGRICULTURAL EXTENSION PROJECT Training 1. The Agriculture Extension Service has an important role in increasing agricultural productivity and thus farmer incomes. To do this, farmers need knowledge and skills for efficient management of their crops, livestock, physical resources, and farm business as a whole. Essentials of success include incentives for production, evolving suitable technology, and availability of credit, inputs, transportation, and markets. The responsibility of the extension agents is to provide the farmer with the knowledge to improve his income, and to verify new technology as it develops. A training program is thus essential both for extension worker and farmers. Practical training is essential for extension workers since they must be able to demonstrate to farmers the actual techniques of improved crop husbandry. The New Program 2. Training programs for extension workers and agricultural administrators must be strengthened to provide better dissemination of advice as a means of overcoming production constraints and assist farmers in the adoption of improved husbandry practices. The Training and Visit System is the basis for an improved extension service. This system depends on sustained and regular training of extension workers and transfer of appropriate recommendations to farmers through regular visits by VEW. The keynote is continuous practical training of VEW and AEO by SMS who are conversant with the latest research results, active in the identification of local problems, and participate in local verification trials. Training in administration and management is required for the higher level of staff. Training Strategy 3. Since the extension service is to improve the quality of farming practices, training of research - extension - farmer teams must be such that it imparts the specific information needed. There is little merit in merely telling the farmer to do something. The farmer needs to know how to carry out a task. It is best if the extension worker actually works with the farmer in peforming specific tasks. This implies that VEW must be able to perform all tasks and, likewise, AEO and SMS who train VEW must also be able to perform all tasks. Furthermore, trainers of SMS (usually research workers and senior staff) need to be acquainted with farming operations and how they are best performed. This requires a change in present training methods from a reliance on lectures to "learning by doing."

41 ANNEX 2 Page 2 4. The first step in designing of appropriate training programs is an identification of the skills and knowledge required by the farmer to improve his production. The second step is to identify which of these would be taught by VEW to the farmer. The order of operation and their seasonal priority is then determined so that VEW can get appropriate training at the proper time. AEO, as supervisor of VEW, would also need training in what is to be passed on to the farmer. AEO should also be able to answer more advanced technical questions, and to identify practical problems. For subdivisional and district SMS, even greater depth of knowledge is required so as to be able to instruct both VEW and AEO. 5. Research workers have to develop ability to identify factors limiting farm production in the field and target research programs to the practical resolution of these problems. This implies joint farm visits by research and extension workers; cooperation in design, execution and analysis of trials on farmers fields; and continuous exchange of information and ideas between research, extension and farmers. Both this project and the National Agricultural Research Project support these activities. Tests and Demonstrations 6. To provide a measure of the effectiveness of training programs and permit trainees to assess progress, short tests of knowledge and demonstration of skills would be integrated into the training program. Precourse testing would assist instructors in emphasizing those areas in which the trainees need the most assistance and eliminate instruction in areas in which they already possess adequate skill or knowledge. Pretesting helps the trainee identify areas in which he needs assistance and thus provides some motivation to learn. Testing may include identification of limiting factors such as diseases, insects, nutritional deficiencies, or demonstrations by the trainee of crop production techniques. Emphasis should be placed on the practical rather than extensive testing of written knowledge. Comparison of pre and post course tests will permit the trainee to identify what he has learnt and the instructor to evaluate the effectiveness and adequacy of his instruction. Training for Extension Workers 7. Fortnightly training of VEW and AEO by SMS would be a major feature of the project. Additional and more specialized training would be provided for each category of extension worker. These are described below. Village Extension Workers (VEW) 8. Preservice Training. VEW have generally completed secondary school. They are usually given a two year diploma course. The content, in the past, included subjects related to community development in addition to agriculture. These courses need more emphasis on practical training. Several states have already adopted shorter courses concentrating on agriculture. In Kerala, training of new VEWs would be for a period of six months. 9. Orientation Training. All VEW would receive special training in extension methodology and the T&V System.

42 ANNEX 2 Page Fortnightly Training. A major feature of the T&V System is training of VEW once a fortnight. This training is carried out by SMS and, reviewed by AEO and his VEW in the alternate week. For sessions given by SMS, the basic training unit would be a group of VEW and AEO. They would meet on a regular day, once in two weeks, to receive training from SMS and SDAO of subdivision, supported as necessary by district staff and research workers. Most sessions would be held where there are means for practical application of lessons taught, viz., a farmer's field, a seed farm, an experimental station, or a training center. Training would cover actual farm situations most likely to arise over the next two week period. Time would be allowed for VEW to carry out field operations and practicals. During training, the VEW would have a chance to raise and discuss problems encountered in the previous fortnight. Representatives of cooperatives, banks, input agencies, agro service units, and irrigation would be invited to attend part of the session to ensure coordination of related activities. On the intervening training day in each two week period, VEW would meet with their AEO to review current problems. 11. Preseason Training. Prior to each of the two main agricultural seasons (kharif and rabi), VEW would receive a 3 day training covering the main seasonal crops and practices recommended for them. The training would be held at subdivision level. The PAO, SMS and SDAO would organize and attend this session. This training would initiate the extension campaign for the coming season. 12. Special Short Courses. Some VEW would be given training in particular disciplines/crops which are of special importance to their areas. 13. Promotional Training. Training grants would be available to selected VEW to enable them to obtain a degree and thus qualify for promotion as AEO. Agriculture Extension Officers 14. Preservice Training. AEO would generally be university graduates. A number of them would be experienced VEW promoted as AEO. 15. Orientation Training. All AEO would receive special training in extension methodology and the T&V System. 16. Fortnightly Training. AEO would attend all training sessions of VEW. They are expected to assist SMS in fortnightly training. In addition to visiting each VEW in the field, AEO would conduct a review training meeting for the VEW each fortnight as necessary. AEO would also be given extra training by SMS to develop greater subject matter competency. 17. Preseason Training. The AEO would participate in the 3 day preseason training prior to the main cropping seasons (kharif and rabi). The training would be held at district level and the training group would consist of KAU and state headquarters staff. 18. Special Short Courses. Selected AEO would be given specialized training for a week in particular crops and disciplines which are of importance to their area of operation.

43 ANNEX 2 Page Promotional Training. AEO who show exceptional talent would be provided opportunities for higher training. Such AEOs will be deputed for a two year M.Sc course at KAU. Subject Matter Specialists (SMS) 20. SMS play an important role in providing technical support and training to VEW and AEO. There would be SMS with different levels of training and competence at subdivisional, district and state levels. Selection criteria of SMS has been considered at national level and following qualifications have been proposed for guidance of the state governments in recruitment of this category. Fresh Recruits: M.Sc (Agri) with specialization in agronomy or other disciplines, prefereably with two years of field experience. 21. Orientation. Suitable instruction would be given in extension methodology and the T&V System to all SMS. Their specific roles would be explained to them in detail. 22. Inservice Training. The SMS would participate in the zonal workshop, pre season training, and specialized short courses. (a) Zonal Workshop: To provide effective training to VEW and AEO once every two weeks, the SMS would have to be up to date in their area of specialization and ensure that training has a practical bias. For this purpose the SMS would participate in a zonal workshop every month at a KAU research station or other suitable location. (b) Preseason Training: The SMS would participate in the 3 day preseason training prior to the main cropping seasons (kharif and rabi). The training would be held at district level. (c) Special Short Courses: In order to build up professional competence of SMS it is considered necessary to provide them opportunities for higher training in KAU, other agricultural universities, and research institutions of national importance. SMS with exceptional talent could be provided opportunities for training in such international research institutions as IRRI (Philippines). 23. Promotional Training. Such of the SMS who do not possess M.Sc degree would be provided opportunities for higher training (M. Sc gri) at KAU. Administrative Personnel 24. In addition to subject matter training and training in extension methodology, administration and management training would be available to SMS and other staff (SDAO, PAO, Joint Directors and ADA).

44 ANNEX 2 Page Orientation. All supervisory personnel would undergo training in extension methodology and the T&V system. Their specific roles would be explained in detail. 26. Inservice Training. Special training programs would be organized by the Director of Agriculture for staff at supervisory levels. Responsibilities 27. The Additional Director of Agriculture (Extension), in consultation with KAU and other appropriate agencies, would be responsible for planning and organizing all training programs. He would be assisted by the SMS team at headquarters. A summary of the training activities is as under: Training Parti- Activity Venue Frequency Duration cipant Trainers Organizers Pre Service ETC, KAU 2 x year 6 mos. VEW KAU DOA, KAU (VEW) Extension recruits Staff Wing, Institute of Agri. Tech. Fortnightly Within 26 x year 1 day VEW SMS, AEO SDAO, (VEW) Subdivision Special- SMS ists Zonal KAU 12 x year 1 or All SMS Selected ADA Workshop regional 2 days SDAO and staff of (Ext.), (Monthly) research PAO of KAU, DOA Officer station/ Zone designother ated by suitable KAU, location local PAO Subidivi- Subdivi- 12 x year 1 day AEO, SDAO, SDAO/ sional sion SMS SMS SMS Planning Workshop (Monthly) Preseason Subdivi- 2 x year 3 days VEW SDAO, PAO, VEW sion SMS, SMS, PAO, SDAO KAU Staff

45 -41 - ANNEX 2 Page 6 Training Parti- Activity Venue Frequency Duration cipant Trainers Organizers Preseason District 2 x year 3 days AEO, District, PAO AEO-SMS SMS KAU, HQ Staff Special District, 1 x year 7 days AEO, District, PAO, Short ETC VEW & HQ HQ Courses SMS, SMS KAU Staff Special KAU, out as Variable SMS, KAU, Agri GOI Short of State, needed 2 weeks Senior Univer- Exten- Courses Overseas to 24 Staff sities sion weeks and ADA Research (Ext.), Institu- SMS HQ tions in India & abroad Deputation KAU 20 per 2 years AEO, KAU ADA of AEO & year SMS (Ext.), SMS for KAU post graduation Deputation of KAU 11 per 4 years VEW KAU ADA VEW for B.Sc year /a (Ext.) (Agri) Course KAU Project District - 2 days District ADA (Ext.) ADA Orientation staff SMS (HQ) (Ext.) Head- - 2 days HQ ADA (Ext) ADA quarters staff SMS (HQ) (Ext.) /a Eleven staff start training each year.

46 INDIA INDIA ~~~~~~Table ANNEX 13 KERALA AGRICULTURAL EXTENSION PROJECT Implementation Schedule : All Components Pre Board Pre Months after Effectiveness Item Presentation Effectiveness Civil Works Site Selection Prepare Tenders Start Construction Vehicles & Equipment Prepare Tenders Purchase Vehicles Staff Equipment Appoint SDAO Select/Appoint SMS Select/Appoint AEO Select/Appoint VEW Training Orientation All Other ; Coordination Committees Project Monitoring Select/Appoint Staff Data Collection, Evaluation

47 ANNEX 3 Table 2 INDIA KERALA AGRICULTURAL EXTENSION PROJECT Estimated IDA Disbursements (US$ Million) Disbursements Semester Cumulative (IDA FY) 1981 lst 0.1 2nd st nd st nd st nd st nd st nd /a Estimated effectiveness date September 30, T7 Estimated closing date June 30, 1986.

48

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