MONITORING AND EVALUATION OF MICRO PROJECTS ESTABLISHED FOR TRIBAL DEVELOPMENT IN ORISSA

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1 Indian Journal of Millennium Development Studies: An International Journal Volume 10 Number 1 January-June 2015; pp MONITORING AND EVALUATION OF MICRO PROJECTS ESTABLISHED FOR TRIBAL DEVELOPMENT IN ORISSA Prasanta Kumar Acharya * Abstract: The Government of India has adopted the Micro Project approach since the 5 th Five Year Plan for undertaking activities to develop the living standard of the Primitive Tribal Groups. Since then crores of rupees have been spent in Orissa but not a single tribe has so far been de-identified as a Primitive Tribal Group. It is primarily because the monitoring and evaluation activities meant for the Micro Projects have been grossly neglected and minimized. The author recommends to revitalize the operational system of Micro Project by strengthening and integrating appraisal, monitoring and evaluation activities under one cover. A State level Appraisal, Monitoring and Evaluation Cell should be established with the research experts of the Scheduled Caste and Scheduled Tribe Research and Training Institute and the Cell should be supported by adequate funds and capacity building programmes in order to make the Micro Projects functionally more effective than its present status. INTRODUCTION The tribes in India constitute a sizeable proportion of the national population. Although they have settled in this country much earlier than the non-tribal people, they are much more backward on socio-economic, education, health, nutrition and many other grounds than the non-tribal communities. The realization of tribal backwardness and subsequently on tribal exploitation took place just prior to the Independence by the British Government who therefore adopted the policy of isolation to protect the tribes from exploitation. After the Independence, the Government of India has undertaken various approaches to bring in rapid development (both qualitative and quantitative) in the living standard of the tribes so as to reduce the development gaps between the tribes and the non-tribes. During the First Five Year Plan ( ) Community Development (CD) Block approach was adopted putting both the tribes and the non-tribes into a single development fold. The disparity in cultural values, aspirations and felt-needs between the tribes and non-tribes was ignored and consequently the approach failed to induce effective development among them. Realizing the defects in the CD Block approach, the Government then tried to introduce special development measures for the tribe during the Second Five Year * Reader in Social Anthropology, NKC Centre for Development Studies, Bhubaneswar, Orissa, ncdsvc@sancharnet.in

2 120 Indian Journal of Millennium Development Studies Plan ( ). And as a part of the measures, 43 tribal dominated Blocks were declared as Special Multi-purpose Tribal (SMPT) Blocks that included 4 (Bhuinya pirh, Kasipur, Narayanpatna and Raruan) in Orissa. The strategy of undertaking special development measures for the tribes was appreciated and therefore, the Government decided to cover more tribal population under this strategy. This idea finally led to adoption of Tribal Development (TD) Block approach during the Third Five Year Plan ( ). In India all total 469 TD Blocks were identified that included 71 in Orissa, Each TD Block had at least 66.6 per cent of its total population represented by tribes. Various development programmes relating to income generation, infrastructure development and basic social needs were implemented taking each TD Block as the unit of development planning. While designing the development plan for each TD Block, it appeared quite impracticable to devise a plan outlay delimiting certain infrastructure development programmes like irrigation, road construction and electrification to the area of jurisdiction of a single TD Block. In order to do away with this problem, the Government introduced Tribal Development Agency (TDA) approach during the Fourth Five Year Plan ( ), where each TDA comprised of a few closely situated TD Blocks. The experiences gained from experimenting with the aforesaid approaches and the findings of the Shilu Ao Committee Report pointed out three crucial strategic loopholes in the whole gamut of tribal development. First, a significantly large extent of tribal population settled outside the TD Blocks could not avail of the benefits of the special tribal development measures, because such measures were taken only for those tribes who were living within the TD Blocks. Second, the objective of integrating area development with people s development was missing and third, the tribes were construed as a homogeneous category and therefore, no special attention was given to the Primitive Tribal Groups (PTGs). The advent of the Fifth Five Year Plan ( ) was marked with a revolutionary change in the tribal development approach. The Government introduced the Tribal Sub-Plan (TSP) approach, which is also continuing now. In this approach, utmost attempt was taken to cater the development benefits to all tribal populations, settled contiguously or in a scattered way. Both area development and people s development were considered as equally important and therefore, both were integrated while framing development plan for an area / people. Emphasis was also given upon single line administration of development programmes. Besides, under this strategy a special attention was given to the overall development of the educationally and economically very backward tribes after identifying them as the Primitive Tribal Groups (PTGs). For this purpose, a special strategy named as Micro Project was adopted. Each Micro Project had a project area covering a few contiguous villages inhabited by a specific PTG. The development activities were undertaken in the Micro Project area with cent per cent assistance from the Government of India. A Project Officer supported by a group of clerical and programme implementing staffs managed the administration of development activities. Every year some amount of grants was released for each Micro Project

3 Monitoring and Evaluation of Micro Projects Established for Tribal Development in Orissa 121 and the grants were utilized for implementing the development activities under various sectors. In order to undertake development activities every year, an Annual Work Plan and Budget was prepared and approved by the Micro Project and the grants were utilized keeping in view the provisions made in the Annual Work Plan and Budget. After implementation of the Tribal Sub-Plan 17 Micro Projects have been set up so far in Orissa to develop 13 PTGs. Under these 17 Micro Projects, 537 villages have been covered that include PTG population (Table 1). Since their establishment, these Micro Projects in toto have spent several crores of rupees to launch various development activities with an overall objective to uplift the living standard of the PTGs to such an extent that they would no more be identified as PTGs. The Government of India through its various State Governments has strived hard for achieving this goal during the last two decades. But so far as the State of Orissa is concerned, it has not achieved this goal yet. In Orissa, the State Government has developed a set of guidelines for the administration of the development activities through the Micro Projects for the PTGs. Furthermore, it has kept both State and Micro Project levels administrative staffs to monitor the implementation of the development activities. There is also a State level Scheduled Caste and Scheduled Tribe Research and Training Institute whose role is capacity building of these administrative staffs especially relating to the execution and monitoring of the development activities. Furthermore, the State Government has already conducted several evaluative studies on the functioning of Micro Projects through some NGOs and research institutes with a purpose to improve the administrative efficiency of the Micro Projects. But despite such measures taken by the Government, not a single tribe has been de-identified as a PTG in Orissa so far. It is therefore imperative to examine the various dimensions of the Micro Project strategy. Keeping this in view, the paper has assessed the Micro Project strategy with relation to its system of monitoring and evaluating the operation of development activities. MATERIALS AND METHODS The facts presented in this paper have been obtained in three ways : (1) by conducting interviews and focussed group discussions with some State, District and Micro Project level official staffs especially concerned with monitoring and evaluation of the development activities operated in Micro Project areas; (2) by undertaking an evaluation study of a Micro Project, the Lanjia Saora Development Agency of Puttasingi; and (3) by reviewing some of the evaluative reports prepared by other agencies on the functioning of Micro Projects. CONCEPT AND NEEDS OF MONITORING AND EVALUATION Adoption of a policy, preparation of an action plan and budget, and implementation of the activities delineated in the action plan are integral components of all development programmes. Similarly, appraisal, monitoring and evaluation are

4 122 Indian Journal of Millennium Development Studies essential activities required to make the development programmes more effective in achieving their goals. Appraisal is concerned with the examination of the scope as well as needs of the action plan and budget, both prospective and annual, of a programme. It is an activity undertaken before implementation of the programme activities. It is concerned with the assessment of the planning of a programme. From development perspective, appraisal is usually meant as a critical examination of a project proposal, normally before the latter is approved for funding and implementation (Dale, 1998). Monitoring is an activity conducted when a development programme is under operation. For the effective implementation of a programme, it is imperative to know whether the programme activities are performed as approved in the action plan or not. The information relating to operation and progress of programme activities is obtained through monitoring. Monitoring meets the information requirements of an ongoing programme. It ends with completion of the programme. It is not an one-time activity. It is a frequent, largely routine wise collection and analysis of, and reporting on, information about the performance of the programme activities and comparison of this with the action plan followed by proposals for corrective measures (Dale, 1998). Monitoring is a means for the donor agency to keep a watch on what is happening to the projects funded by them. It is an act to check what the local programme implementing body is doing and a means to ensure proper implementation of the programme (Cracknell, 2000). Monitoring can be done in two ways : (1) internally and (2) externally. External monitoring is done by an agency not involved in the implementation process of the programme. It gives a report that is expected not to be biased or manipulated under the pressure of the programme implementing personnel. It is often used to crosscheck the data of the monitoring report prepared by the programme implementing personnel. It is non-participatory type because the monitoring staffs are in no way responsible to, or involved in, the programme implementation. Internal monitoring in operated by the programme implementing personnel, often with involvement of the programme beneficiaries. It is a participatory type of monitoring and therefore it is often termed as participatory monitoring (Case, 1990). Monitoring, external or internal, provides information during the life of the programme, so that adjustments and / or modifications can be made if necessary. Monitoring is done periodically, may be daily, weekly, monthly, quarterly etc. It takes time to stop and analyze its findings for the purpose of reorienting the implementation strategies adopted for a programme. The value of monitoring has been largely acknowledged by many national and international donor agencies, including the World Bank and the UN agencies. Great emphasis has been given now on monitoring to achieve more success in programme implementation. In one way it is argued that the success of a programme largely depends upon the effective administration of monitoring, which in turn requires proper planning as well as preparation. For instance, the monitoring staffs should

5 Monitoring and Evaluation of Micro Projects Established for Tribal Development in Orissa 123 first know the purpose, importance and methods of monitoring. They should be well trained to both collection and analysis of data relevant to monitoring. Furthermore, appropriate schedules and questionnaires should be developed keeping in view the goals and indicators of monitoring. The utility of monitoring is primarily linked to tracking as well as ensuring of timely, adequate and proper provision of the programme inputs. In international level, the donor agencies have started giving importance to monitoring since 1980s, but they have given emphasis upon the essentiality of evaluation since 1960s. Both monitoring and evaluation are inter-linked, rather complementary, terms but they differ perceptively in their goals, scope and utility. Evaluation is a thorough examination of programmes at specified points of time, either during or after the operation of programme, usually with emphasis upon an analysis on the impact, efficacy, relevance, replicability and sustainability of the programme (Dale, 1998). Thus, whereas the span of monitoring is limited to the operational period of the programme, the span of evaluation may extend beyond it. Furthermore, the objective of monitoring is to ensure proper implementation of programme but evaluation does not ensure, rather suggests how to ensure it. The scope and utility of monitoring is restricted to programme implementation but evaluation has a larger scope that includes implementation, impact, replicability and sustainability of a programme. Broadly speaking, monitoring examines the provisions of the inputs whereas evaluation makes assessment on the outcomes of a programme. Evaluations are mainly to two types: (1) formative and (2) summative (Dale, 1998). Formative evaluation aims at improving the performance of the programme. It is thus conducted while the programme is under operation. Usually it is done more than once, at set intervals in the course of the programme implementation. It is therefore also called as process, mid-term or concurrent evaluation. Its main objectives are to assess the system of administration of the programme, to locate loopholes in the system, and to suggest measures to plug these loopholes, bringing in an overall improvement in the implementation of the programme. It has thus a scope to rectify a programme during the period of its action. Summative evaluation, on the other hand, does not have this scope because it is conducted after the complete implementation of the programme. Its objective is to judge the worth and efficacy of the programme in achieving its desired goals. Its utility is linked with improvement in the planning of similar programmes. The summative evaluation also intends to assess the accountability of the programme managers and the implementing agencies and therefore it is invariably conducted by external agencies that have no linkage with the programme implementation. However, formative evaluations may be conducted either internally or externally. That means, these may be done either by the programme beneficiaries and the programme implementing personnel or by the agency that is not involved in programme implementation. In the former case, the formative evaluation is also called as participatory evaluation or self-evaluation. Participatory evaluation enables the programme implementing personnel as well as the programme beneficiaries to

6 124 Indian Journal of Millennium Development Studies realize the bottlenecks as well as the harmful impacts of the programme and therefore they themselves can contribute to reorient the programme strategies. In such case the programmes become more effective. EXISTING SYSTEM OF MONITORING AND EVALUATION OF MICRO PROJECT For the purpose of monitoring the development activities undertaken by the Micro Projects, the Scheduled Tribe and Scheduled Caste Development Department of the State Government has set up a State level Monitoring Cell with the Commissioner-Cum-Secretary of the Department as its highest authority (Acharya et al, 2001). The Cell is now monitoring the progress of various development activities by receiving only quantitative data through Monthly Progress Reports (MPRs) on physical and financial target achievements from the Micro Projects. Besides, the Commissioner-Cum-Secretary and the Director the Department have sometimes visited the Micro Projects to oversee and review the progress of the development activities. However, their monitoring activity has not been a periodical one. Besides, their monitoring observations are not compiled and kept recorded in the Monitoring Cell and therefore there is no record of any measure, if at all suggested by the Secretary and the Director, taken to reorient the execution of development activities by the Micro Projects. The Cell has remained in darkness about their monitoring observation and suggestions. There is no mechanism adopted to monitor the development activities undertaken by the Micro Projects at District level. The District Welfare Officers who are concerned with implementation of tribal welfare activities have not been entrusted with any monitoring task. At Micro Project level, there are staffs to monitor and supervise the development activities but these staffs have neglected to their duties because they have not been paid their salaries very often for several months consecutively. This has grossly affected the activities like beneficiary selection, input supply and infrastructure development. Whether State or Micro Project level, the monitoring activities have not been properly planned with regard to the time, aspects, indicators, methods and processes of data collection. There is no mechanism adopted for operationalizing participatory monitoring in which the programme beneficiaries and the programme implementing personnel can together conduct the self monitoring activity. In developing the proper indicators as well as formats for monitoring, the Scheduled Caste and Scheduled Tribe Research and Training Institute has not been adequately utilized. In order to assess the impact of the development activities in Micro Project areas, the Scheduled Tribe and Scheduled Caste Development Department has also set up an State Level Evaluation Cell with the Commissioner-Cum-Secretary as its highest authority. The Cell has so far undertaken evaluation studies on some Micro Projects by engaging the NGOs and research institutes for the purpose. Many of these reports have not evaluated the development activities from the points of replicability and sustainability. Even the impact aspect has not been analyzed by

7 Monitoring and Evaluation of Micro Projects Established for Tribal Development in Orissa 125 using proper indicators. Furthermore, after completion of the evaluation studies by the external agencies, the Evaluation Cell of the Department has taken several years to critically assess the reports. After finalization of reports, for which several lakhs of rupees have been spent, the Department has so far not taken sufficient measures to utilize the findings of the reports in reorienting the policies and strategies adopted either for implementing the development programmes or for making the Micro Projects functionally more vibrant and effective. At Micro Project level there is also no strategy adopted for making self-assessment by undertaking participatory evaluation of the development programmes. The Scheduled Caste and Scheduled Tribe Research and Training Institute has not been engaged with the responsibility of designing a plan of action and developing the required indicators as well as schedules for operationalizing participatory evaluation in Micro Project areas. POLICY RECOMMENDATIONS Keeping in view the aforesaid status of monitoring and evaluation activities, the following policy measures are recommended to strengthen the overall functioning of the Micro Projects. 1. Monitoring and evaluation activities are separate but deeply interrelated and therefore the Scheduled Tribe and Scheduled Caste Development Department should not segregate the two by establishing two different Cells at State level. Furthermore, the appraisal activity is also perceptively interlinked with both the monitoring and evaluation activities. In view of this, it would be wise to have only one State level Cell, i.e. Appraisal, Monitoring and Evaluation Cell. The Cell should be established not at the Department whose staffs are not adequately trained to carry out these activities in time and maintaining quality functioning. The Cell should therefore be set up in the Scheduled Caste and Scheduled Tribe Research and Training Institute with engagement of some experienced research staffs. 2. Necessary capacity building activities may be organized using the experts in the fields of appraisal, monitoring and evaluation to train the staffs of the Appraisal, Monitoring and Evaluation Cell in executing their responsibilities in effective manner. 3. Under the guidance of the appraisal, monitoring and evaluation experts especially relating to various development programmes, the Appraisal, Monitoring and Evaluation Cell should develop appropriate modules and methods for conducting participatory appraisal, participatory monitoring and participatory evaluation of all development programmes launched in Micro Project areas. 4. The Scheduled Caste and Schedule Tribe Research and Training Institute should also undertake periodical capacity building programmes to train the Micro Project level official staffs and the beneficiaries on participatory appraisal, participatory monitoring and participatory evaluation.

8 126 Indian Journal of Millennium Development Studies Table 1 Village, Tribe and Population Coverage of Micro Projects Source: Tribal Sub-Plan for 9 th Plan, & Annual Plan,

9 Monitoring and Evaluation of Micro Projects Established for Tribal Development in Orissa The Appraisal, Monitoring and Evaluation Cell should make impact assessment of these capacity building programmes and basing upon its findings, the programmes may be reoriented wherever required. 6. Keeping in view the broad objectives of establishment of Micro Projects and the specific objectives of each development programme, monitoring and evaluation data have to be gathered through the Micro Projects as well as some expert external agencies and these data may be compiled and tabulated State, District and Micro Project wise by the Appraisal, Monitoring and Evaluation Cell. The Cell may therefore be provided with the necessary modern equipment and infrastructure and adequate amount of funds. 7. The Commissioner-Cum-Secretary and the Director of Scheduled Tribe and Scheduled Caste Development Department should be given specific responsibility to extend all kinds of administrative and financial support to the Appraisal, Monitoring and Evaluation Cell for taking up a mission approach. They may be made accountable and held responsible for the ineffective functioning of the Cell and also for non-utilization of the grants released for the functioning of the Cell. CONCLUSION From the aforesaid discussion, it may be concluded that in the operation of the Micro Projects, the State Government has highly neglected the monitoring and evaluation of the development programmes. Further, it has not taken due measures to reorient the policies as well as strategies relating to tribal development in Micro Project areas basing upon the findings of the evaluation reports submitted by some external agencies. It is highly essential to integrate the appraisal, monitoring and evaluation activities by setting only one State level Cell. The Cell may be adequately strengthened to take up a mission approach to execute its responsibilities. References Dale, Reidar (1998), Evaluation Frameworks for Development Programmes and Projects, New Delhi : Sage Publications. Cracknell, B. E. (2000), Evaluating Development Aid, New Delhi : Sage Publications. Case D. D. (1990), The Community s Tool Box, Rome : Food and Agriculture Organization of the United Nations. Acharya, P. K. and R. Mishra (2000), Evaluation of Lanjia Saora Development Agency, Puttasingi (Orissa), (Project Report), Bhubaneswar : NKC Centre for Development Studies. Acharya, P. K., R. Mishra, N. Panigrahi and R. P. Mohanty (2001), Functioning of Welfare Schemes for the Scheduled Castes and Scheduled Tribes : A Report on Orissa, (Project Report), Bhubaneswar : NKC Centre for Development Studies.

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