Type of Review: Annual Review
Project Title: Mahila Samakhya Women Empowerment Program
Date started: September 2007
Date review undertaken: March 2013
Instructions to help complete this template:
Before commencing the annual review you should have to hand:
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the Business Case or earlier project documentation.
the Logframe
the detailed guidance (How to Note)- Reviewing and Scoring Projects
the most recent annual review (where appropriate) and other related monitoring reports
key data from ARIES, including the risk rating
the separate project scoring calculation sheet (pending access to ARIES)
You should assess and rate the individual outputs using the following rating scale and description.
ARIES and the separate project scoring calculation sheet will calculate the overall output score taking
account of the weightings and individual outputs scores:
Description
Outputs substantially exceeded expectation
Outputs moderately exceeded expectation
Outputs met expectation
Outputs moderately did not meet expectation
Outputs substantially did not meet expectation
Scale
A++
A+
A
B
C
Introduction and Context
What support is the UK providing?
UK provides up to £34m of Financial Aid (FA) over a period of 7 years (2007-14) to Mahila Samakhya,
a program of Ministry of Human Resource Development, Government of India (GoI). In addition to the
FA, DFID also provides up to £1m for Technical and Management support to the programme.
What are the expected results?
What will change as a result of our support?
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60% of all women members of the sanghas or collectives; (1,150,000) will be involved in local
self governance processes (voting, campaigns, contesting in elections and participating in gram
sabhas).
Over 10 % increase in sanghas (33.8%) with microcredit activities and 25% increase in members
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(59%) with independent bank account.
Over 10% increase in the number of women who are able to take independent household
decisions – age of marriage of girls, use of contraceptives and household purchases.
What are planned Outputs attributable to UK support?
1. Mahila Samakhya consolidated and expanded to promote gender equality and women’s
empowerment.
2. Greater participation of women and girls in formal and non-formal educational programs.
How we will determine whether the expected results have been achieved?
A comprehensive program Management Information System is in place to track achievement of results.
Secondary sources are used to calculate block level achievement and an end line study will assess the
overall program results. Annual Joint Review Missions (JRM), monitor progress on the ground. The last
JRM with nominees of DFID and GoI was conducted in March 2013.
What is the context in which UK support is provided?
What needs are we trying to address ?
Despite progressive policies, legislation and an impressive growth rate, India continues to suffer from
gender inequality. The 2010 Census reported the child sex ratio as 914, a seven point decline from 927
in 2001. A third of women have experienced physical violence, mostly committed by their husbands.
Girls’ under-five mortality is 61% higher than boys.
Mahila Samakhya was launched by the Government of India in 1989 directly to address the problems
of gender inequality in India. The program promotes education as being central to women’s
empowerment and addresses social, cultural and economic barriers. The focus is on poor and
marginalised women in rural areas especially from scheduled caste, scheduled tribe and Muslims. The
program goes beyond literacy and is a process of collectivisation, critical reflection and selfdetermination.
What we will do tackle this problem?
The principal strategy used by the program is to mobilise and organise women in sanghas (collectives)
to articulate their problems and take collective action. With DFID support, the program has increased
its coverage and intensified its approach for improved educational status, institutional capacity of
sanghas and federations, strengthen better access to health services, improved economic
opportunities and political participation.
Who will be implementing the support we provide?
The executing agency is Ministry of Human Resource and Development (MHRD) through their
Elementary Education Bureau (EEB). The Additional Secretary and National Project Director are the
key personnel at the national level.
MS is implemented at state level through State Implementation Societies (SIS) and State Project
Offices (SPO). The SPO’s manage the delivery of Mahila Samakhya through District Implementation
Units (DIUs). DIUs support Sahayogini, the key field level functionaries, who facilitate the formation and
functioning of the sanghas. The nodal point for the program is the sanghas and the federations of
sanghas.
Implementation of the program is supported at the national, state and district level by Resource Groups
of experts who provide technical support to the program.
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Section A: Detailed Output Scoring
Output 1: Mahila Samakhya consolidated and expanded to promote gender equality and women's
empowerment
Output 1 score and performance description:
Output Score: A: Outputs met expectations
Performance description: No milestones were set for the year but the MIS data indicates a sustained
growth for all the three indicators and the program is set to over achieve the targets for 2014.
National and state program teams have focused both on expansion and consolidation of core
institutions of the programs - federations, Sanghas (women’s groups) and Nari adalats (women’s
courts – an informal redressal mechanism). The focus is on their capacity building, cross learning,
strong governance and financial management systems.
The MS program currently covers 11 states1, 122 districts, 616 blocks and 39,566 villages. More than
48,000 sanghas (women’s collectives) have a membership of about 1.27 million women. MS offers no
savings/credit or any other incentives and has mobilized the voluntary participation of women to
challenge and address gender barriers and issues at the individual and community levels. This in itself
is remarkable given the mushrooming of SHGs promoted by several development programs.
Music, dance, theatre and painting and other creative expressions are equally essential to the process
and MS has created a rich body of communication material– posters, songs, slogans, broadsheets,
street theatre, scroll painting, wall writing and videos. These have had huge impact in social
mobilisation, pressure building and challenging norms and attitudes.
JRM 2013 recognised the achievements in MS around the successful mobilization, demonstrated
agency of poor women, and the overall energy in the field. MS promotes systematic thematic
programmes that address issues and hurdles which hinder women’s freedom, from demands for roads
and drinking water to voices against purdah, segregation, child marriage and the devadasi system.
Sangha members report that their bargaining power at home and in public forums has been enhanced.
Progress against expected results:
This output looked at achievement of following indicators:
Additional districts and Educationally backward blocks (EBB) covered:
No milestones for 2013. Number of districts: Baseline: 83; coverage March 2013: - 122; Target 2014 –
115; EBB baseline: 379; March 2013:616 blocks; Target 2014 – 550.
The program has already exceeded the end line targets. In the last year, the program expanded to 5
more districts and 25 more blocks. Federations take the lead in selecting new blocks and setting up
new sanghas.
The expansion of the program is desirable to create a critical mass of empowered women, and
influence development policies and programs. However, the JRM cautioned against a rapid expansion
of the MS programme as it may dilute the quality of field processes, more so as the program finds it
difficult to retain and recruit qualified staff in its current salary structure.
1
The 11 states are Assam, Bihar, Jharkhand, Chattisgarh, Gujarat, Kerala, Karnataka, Uttar Pradesh, Uttrakhand,
Andhra Pradesh and Rajasthan. A state society was set up in Rajasthan in 2010 but is yet to become functional.
3
No. of new Federations formed; % of registered federation becoming autonomous:
No milestones for 2013. Present coverage: Number of Federations - 272; Target 2014 – 200;
Autonomous Federations: 98; target 2014 – 550.
33 new federations were added last year. 29 more federations cleared the benchmarks and were
declared autonomous. Norms for what is to be considered an “autonomous federations” have been
agreed with the states. Capacity building includes knowledge on women’s issues and acts,
management and governance systems for the federations, financial audits and independent activities.
Understanding of the purpose as well as the process of forming federations varied across the states.
While Karnataka has very strong federations with equally strong capacity building content, the
understanding of Federation members in Jharkhand was patchy.
Several community based structures and committees have come up at the village level – whether a
school management committee or a mothers committee or a credit group etc. membership across
these committees is common. The relationship between collectives being facilitated by MS and the
multiple women’s committees/ structures that have come up at the village level need serious attention
and understanding.
The program has a number of vibrant examples and some of them are captured here.

Federation in Shivsaga block in district Rohtas, Bihar runs a call centre in collaboration with the
Public Health and Engineering Department2 for handpump repair and maintenance. 50 women,
trained in hand pump maintenance provide swift on-site service at a fee, to the entire block.

Federations in Assam and Jharkhand are part of the MS promoted network on anti-trafficking
especially of young girls. They have successfully mobilized the community and also linked with
the police departments, state homes and other referral group or safe repatriation and
reintegration of rescued girls.
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Assam continued its innovative approach of “data exhibition” where the sangha and federation
members along with PRIs, hold a public exhibition of the carefully collected data including
beneficiaries listing, allocations and expenditure, on key schemes (ICDS, NREGS etc).

In Mysore district, Karnataka, federations, in collaboration with IT for Change, run three Mahiti
Kendras or information hubs, where information and applications for various schemes can be
accessed at a nominal charge;
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Partnership with the Drinking Water and Sanitation Mission in Jharkhand saw sanghas and
federations playing a very significant role in facilitating delivery of water and sanitation services,
training of frontline workers, capacity building of Village Health and Sanitation Committees and
mobilization for “nirmal gram”;
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In Kerala, MS has sensitised all school teachers on gender-based violence faced by girls &
social discrimination both inside and outside the school. Help Desks have been set up in all the
schools and are managed/ monitored by teachers who are selected by the students;
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In all the five states3 covered under JRM, Sangha women were members of School
Management committees and are monitoring attendance of teachers and quality of MDM.
No of additional sanghas and sangha members:
No of sanghas: Baseline: 29,808; March 2013: 49,581; Target 2014: 46,000
2
3
The call center is supported thru another DFID program “SWASTHH”.
JRM 2013 covered the following five states: Assam, Bihar, Jharkhand, Karnataka, Uttrakhand
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No. of members: baseline 701,000; coverage March 2013: 1,300,000; Target 2014: 1,150,000
MS has already exceeded the end line targets. .
Responding to the recommendations of the previous JRM MS has made special efforts to reach out to
marginalised groups. Assam has focused on geographic isolation and expanded the program to
villages in the Char area (riverine areas), frequently devastated by floods and to Tea garden estate
habitations. In Uttarakhand there is now a greater focus to reach out to SCs and Muslims, a gap that
had been pointed by earlier evaluations. Jharkhand has made special efforts to reach out to Muslim
women, girls and boys in both urban/peri-urban and rural areas and to trafficking survivors.
Over 2000 new Kishori Manchs, (total till March 31, 2013: 21,971) that bring together adolescent girls
were set up, primarily by the Federations. Kishori Manchs build the leadership of young women, give
them life skills, education, facilitate access to scholarships and other entitlements and provide a
support network. Many of the girls give tuitions to younger kids or teach women in their communities.
Several instances across states highlight Kishori Manchs role as a pressure group against early
marriage, child labour and education.
An encouraging practice in Jharkhand, Assam and Karnataka is mobilization of young boys into groups
“Kishore Manch”. The boys groups in Jharkhand are active in community development activities such
as cleaning the ponds, celebrating important events and running the “Village Resource Centre”.
Kishore Manch can be an important strategy to sensitise the boys on gender issues and create a more
enabling environment in communities.
Expansion to new areas and reaching out to more members needs to be harmonised with withdrawal
from older areas where the sanghas and federations are more mature and may require less intensive
and different kind of support. MS does not have systematic transition plans in place.
Number of Nari Adalats and cases:
Number of Nari Adalats: Baseline; 186; coverage March 2013: 625; Target 2014: 250
Cases heard: baseline: 7368; March 2013: 23,353; Target 2014: 38,400.
238 new Nari adalat centres were added in 2012-13. This impressive increase of 61% was accounted
by: a) Gujarat, where the state women commission collaborated with MS to set up Nari Adalats in nonMs areas as well; b) Bihar where centres were opened in new blocks and c) Uttrakhand where in a
pioneering initiative, centres were opened at cluster level (5-7 gram panchayts/25 villages).
The increase in the total number of cases was not commensurate and around 1000 new cases were
heard The incidence of violence has come down as a result of the MS interventions in the “older”
blocks/districts. This was also corroborated by JRM. Also the number of centers have increased by
nearly 200% in the last two years (March 2011 – 215; March 2012 – 387; March 2013 – 625) and the
focus of the state programs was more on building awareness about Nari Adalats and putting in place
operational systems.
Violence against women is a central theme for all the states and issues such as alcoholism that affect
women the most have the greatest resonance across the states. Other common issues are child
marriage, education for girls, and dowry. Jharkhand and Assam also have trafficking and witch hunting
as their thematic priorities.
Sanghas intervene in cases of domestic violence, child marriage at the village level, drawing on Nari
Adalats for support and for more challenging issues such as desertion, divorce, land rights, rape and
bigamy. Sangha members identified dowry as one of the most difficult issues to address. All the MS
members that the JRM team met said that the incidence of domestic violence had come down and
gave many examples to justify their statements.
The JRM notes that the linkages with law enforcement agencies, referral networks and legal redressal
varied across states. Karnataka and Uttrakhand had these linkages in place, while in Jharkhand the
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program needed to invest more in building referral and reintegration services.
Recommendations:
Coverage and reaching the marginalised:
 Each state program to articulate the nature of exclusion and map out pockets that need
attention; consider innovative approaches to reach out to poor women. Sanghas could
consider opening up some of the issue based group meetings to others in the community so
that the most marginalised can benefit from the MS learning process.
 Develop a transition plan from the older areas, saqnghas and federations
 Examine the entire kishori strategy to ensure that kishori empowerment is effectively enabled.
Lessons from the successful mobilization of sangha women as well as the rich experience of
the MSKs can inform this process.
Federations
 NPO to support an organizational development process for, sanghas, federations and project
staff to achieve greater clarity on structures, roles and resource mobilization.
Violence Against Women
 Strengthen and reinforce knowledge about core legal provisions at all levels of the program.
Adapt existing material and protocols on the provisions of selected key acts.
 Build a more cohesive “end to end” referral and response support especially for women and
girls who have faced violence.
 Provide professional counselling for its own staff, many of whom are grappling with similar
issues at a personal level.
Impact Weighting (%): 40%
Revised since last Annual Review? Y/N No
Risk: Low/Medium/High Medium
Revised since last Annual Review? Y/N No
Output 2: Greater Participation of Women and Girls in Formal and Non Formal Educational Programs
Output 2 score and performance description:
Score: A : Outputs met expectations
Performance description: MS has maintained a focus on generating demand for education and
facilitating educational opportunities for women and girls in all the program states. The education
interventions for girls under MS include Mahila Shikshan Kendras, Kasturba Gandhi Balika Vidyalaya4,
Residential Bridge Course, NPEGL5 and strengthening the schools management committee. Not only
have these efforts enhanced the academic base for women and girls but have also provided
comprehensive support for extra-academic issues. MS is also involved in the literacy drives and
campaigns for adult women and runs litercay centers, called “jagjagi” or “world awakens”.
Sangha women have become members of School Management committees and are monitoring
attendance of teachers and quality of Mid-day Meals in all the states covered during the JRM.
Progress against expected results: No milestones were set for this year.
DISE data was analysed for the EBB and MS districts last year by an independent consultant.
The analysis showed that the milestones for 2012 were met and targets for 2014 were likely to
4
5
KGBV – Kasturba Gandhi balika Vidyaya – (Residential schools for poor girls till class Viii and in some states till X/XII)
NPEGL - National Programme for the Education of Girls at the Elementary Level
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be exceeded. New analysis was not commissioned for this year.
Girls’ Elementary education in MS EBBs: i) Total Enrolment and ii) Dropout Rate6.
As the Annual Review of 2012 reported, analysis of the DISE data showed that the enrolment and
dropout rates for Scheduled Caste (SC) and Scheduled Tribes (ST) increased significantly and met the
end of project targets for 2014. (Please see the footnote below for enrolment and drop out numbers. )
The assumption is that as Mahila Samakhya expands its influence, and as women gain literacy skills
through formal and non-formal education programmes, the enrolment of girls will increase, the drop out
rate will decrease and the girls’ share of enrolment will be equivalent to (or higher than) their share in
the population. Members of the Sangha and Federations that the JRM visited took great pride in stating
that all the girls in their area were in school, child marriages stopped and age of marriage gone up.
Enrolment of girls in secondary education in MS districts
Interactions in the field confirmed that most girls were going to secondary school. The Secondary
Education Management Information System (SEMIS) of 2010-11 showed a 4% overall increase in the
gross enrolment ratio over 2008-2009. The trends for the states are along similar lines.
Girls' Share of enrolment to primary and upper primary Education in the EBBs, particularly for
SC/ST/Muslims
Though more and more girls are enrolling and completing secondary education, the JRM (in Jharkhand
for e.g.) did meet with a few Muslim girls who could not continue beyond primary level because of
financial constraints. MS must include scholarships as a core entitlement to be promoted and include it
in the MIS as well.
The milestone review for the annual Review, 2012 noted that the program is on track to achieve the
end line targets.
Baseline
Milestone
(2012)
actual
Target
2014
SC
47.47
48
48.29
48.3
ST
48.61
49
48.5
49.5
Primary
Muslims
52.48
Upper
primary
SC
46.06
46.5
48.24
48.3
ST
46.85
47
48.82
49.5
Muslims
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52.48
AR 2012: SC Milestone (2012) – 913,030; achieved – 984,937; Target 2014: 949,551
ST milestone (2012) – 572,707; achieved – 964,664; Target 2014: 595,815.
Dropout rate: Milestone: 9.5%; achieved - 6.8%; Target 2014: 7.6%
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Numbers of Mahila Shikshan Kendras girls passed out from MSKs and Number of MSK girls
mainstreamed into schools
Baseline: 87; Achieved 2013: 95; Target 2014: 100
Girls enrolled in formal schools: Baseline: 7270; Achieved: 14,992;Target 2014: 13,270
Mahila Shikshan Kendras, are residential training centres that provide 8-11 month training to drop
out/non enrolled adolescent girls and older women in the age group of 14-35 years. The girls are then
either mainstreamed to regular school or continue their education through national Institute of Open
School (NIOS) or adult education centers. The number of girls per center is 30 who are selected
through a fairly rigorous process. JRM teams interacted with enthusiastic, very hard working and
articulate girls at the Mahila Shikshan Kendras it visited.
A number of adaptations of Mahila Shikshan Kendras are seen across the states. In Karnataka the girls
in the Mahila Shikshan Kendras are trained to take the 10th board exams and along with the state
approved curriculum, MS-K also follow a more gender sensitive curriculum and pedagogy on child
rights, rights of women, etc.. Assam has converted Mahila Shikshan Kendras into residential special
training centres since the enforcement of Right to Education (2009).
MS in Jharkhand started two special Mahila Shikshan Kendras for trafficked children, who are referred
to the centers by ChildLine, the 24 hours helpline for children in distress. Girls felt settled, safe and
protected at the MSK but were apprehensive about continuing their education beyond Mahila Shikshan
Kendras. In Kaimur, Bihar the JRM team met several married girls who had been enrolled in the Mahila
Shikshan Kendras as well as child widows, most of whom belonged to poor marginalised families.
However, not all girls though who pass out of Mahila Shikshan Kendras are admitted into KGBVs or
other government schools. Several different reasons are given for it – the girls exceed the age criteria
as per the RTE, they are too outspoken and not a good influence on the others, they do not meet the
required academic standards. In Jharkhand, the program tries to link the girls who are not admitted to
NIOS, but is not always successful.
Recommendations:
Mahila Shikshan Kendras: With RTE in place and RMSA unfolding, Mahila Shikshan Kendras clearly
needs to be recast to – a) continue transitional training for older girls in the 11-14 years to rejoin the
mainstream; b) take the students up to secondary level and provide employability and vocational
training; ask for up-gradation or /and tie up with NIOS and become a centre to prepare students for
NIOS exams.
Adult Literacy: Ensure strong continuing education opportunities for adult learners to prevent relapse
into illiteracy.
Partnership with SSA/RMSA - MS has rich experience in providing life skills education which could be
incorporated into the KGBVs. The Mission suggests that mechanisms be worked out so that in each
State MS could play a resource support role for KGBVs in the areas of life skills education in particular.
This would require active facilitation by NPO.
Impact Weighting (%): 60%
Revised since last Annual Review? Y/N No
Risk: Low/Medium/High Medium
Revised since last Annual Review? Y/N No
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Section B: Results and Value for Money.
1. Progress and results
1.1 Has the logframe been updated since last review? Y/N
No
1.2 Overall Output Score and Description:
Since the program has met the outputs, the overall score for the year is A.
1.3 Direct feedback from beneficiaries
In the fourth Joint Review Mission in March five states were visited: Assam, Bihar, Jharkhand,
Karnataka and Uttarakhand. Mission members interacted with sangha and federation members,
kishoris, programme personnel at state and district levels.
Both the programme and sangha women have developed strong linkages with various programmes
that benefits women. The awareness of sangha and federation women regarding their entitlements
including access to existing government schemes related to health, education, PDS, RTI, RTE, PRIs,
MGNREGS and social security schemes like widow and old age pension was fairly high.
A 14 year old girl, who was trafficked and repeatedly sexually abused, found a safe, secure and loving
environment ion MSK. She said “I forgot everything. I studied so hard – all day and sometime even in
the night. I want to continue my education and be financially independent.”
Early marriage and mismatched marriages are common in few villages of Darrang district of Assam.
E.g. A young Muslim girl of 16 years was forced to marry 60 year old man of the same community.
Sangha women gave a letter to Kazi of the community requesting him not to solemnize early marriages
and informed commission and District Collector of the action taken by them.
In KGBV in Chenari, Kaimur district in Bihar visited by the mission the girls were confident and eagerly
wanted to share their achievements in various extra-curricular activities. All the girls requested that the
KGBV be upgraded to Class X.
Jharkhand has a large number of Kishore manch of young boys. They take on more external and
public services such as cleaning of ponds, maintaining water resources or organising games. They
also run village resource centre that serves the information and learning needs for both girls, boys and
adults.
Pushpa, Sangha member from Tehri, Uttarakhand appeared for class 8th exam alongwith her grand
child and cleared the exam with better grades than him. Initially the grand children made fun of the fact
but when the results were out, they became speechless.
In Bihar many examples were shared with the team of women/girls who studied in Jagjagi kendras and
have become achievers – Pushpa Rana is now a singer, another girl in Rohtas has been selected in
the state police department.
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1.4 Summary of overall progress
The program met the milestones/end line targets for the log frame indicators.
Mahila Samakhya contributes about 13% to the overall DFIDI Operation Plan (2011-15) result on
empowerment.7
Mahila Samakhya programme demonstrated increase in self-esteem and confidence of individual
women and collectives. During the field visits the JRM saw the changes and improvements on a
variety of fronts- enhanced mobility and voice for women, decrease in MMRs, increase in institutional
deliveries, improvements in sex ratios, improvements in nutritional status, advancing of age of
marriage, more girls in schools, more women in panchayats, greater control over community
resources, and enhanced literacy levels.
All these successes and emerging outcomes, however, are recorded episodically and MS is not
building sound evidence of the exciting transformations taking place in the project villages. The
program offers valuable insights on women’s empowerment, learning and agency and the social
implications of this process. MS must put in place a more rigorous approach to evidence building.
Progress against last year’s recommendations
Recommendation of 2012 Annual
Review
Make National Resource Centre
operational
follow up with MHRD for increased
program allocations
Action Taken
MHRD has decided not to form National
Resource Centre
Information available is that Government of
India allocations under the 12th Five Year Plan
will increase to Rs 400 crores from Rs 210
crores in 11th plan.
Commission studies to review, evaluate Proposals received from agencies for the
and scale up MSK and other education evaluation of Mahila Shikshan Kendras in 10
interventions
states; likley to begin by June 2013.
ToRs for End line study being developed
Facilitate linkages with National Rural State offices have developed their own
Livelihood Mission (NRLM) and with relationships but will benefit from a more
DFID supported civil society and state strategic partnership directive from the central
budget support programs.
government.
MS Bihar works closely with DFIDI supported
Swasthh program on hand pump repair and to
address VAW.
MS-Jharkhand is in discussion with PACS
State team to work together on access to
entitlements and specially o RSBY.
DFID ART supported Regional anti-trafficking
program has Jharkhand as a focus state. DFIDI
facilitated an introduction and the MSJharkhand will now be a key field partner under
the program.
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OP result under Governance and security: Number of people supported to have choice and control over their own
development and to hold decision makers to account. The number includes women reached in 2009 and 10 and
who continue to be part of MS.
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1.5 Key challenges
Strategic Alliances: MS has leveraged several government and non-government partners to achieve its
mandate. However these have been more at the state level and somewhat ad hoc. National Project
Office should facilitate institutional partnerships both within its own ministry with SSA and with Sakshar
Bharat; and with other key departments/schemes – Ministry of Women and Child and National Rural
Livelihoods Mission. These will give the State teams the necessary legitimacy and support to leverage
existing programs.
There is an urgent need to look at the livelihoods in a focused manner and promote enterprises/options
that are viable. Similarly vocational skills taught to girls in MSK needs very careful scrutiny and must be
distinguished from art and craft classes which are for expression and adornment. Market research and
product line choice which is economically viable must be encouraged.
Such partnerships/alliances would also bring clarity of approach to SHGs and Savings and credit
groups and their relationship with MS, given that the national and state governments are actively
promoting them.
Perspective and capacity building: Though strong, the entire perspective building and content of
training of both staff and sangha women needs a refresh. This will be important to continue to deepen
their understanding of self-esteem, various laws, changed ground realities, new developmental policies
and initiatives.
Research vacuum: Currently the programme lacks partnerships with individuals/ organisations that
could effectively support MS for research and evaluation. MS’ very strong narrative on what works for
women’s empowerment and leadership is considered weak in the absence of any rigorous
assessment.
Service conditions: The MS staff at all levels is poorly paid with little service benefits. This impacts the
morale and motivation of the staff. The functionaries of MS are ill paid, work hard and have little
leisure. The sahayogini is not seen as a full time worker within the scheme, and the MSK teacher who
works 24 hours is also paid less than half of her counterpart teaching in government schools.
1.6 Annual Outcome Assessment
Overall Score – A
The program is on track to achieve the program outcomes on raised capacity and confidence of
sangha and federation members - political participation of women, economic activity and women’s
decision making. No milestone was set for the year and an end line assessment, to be conducted later
in the year, will capture the achievements.
Using primary data, a University of Illinois 8, USA study on MS, Uttrakhand showed that participation in
MS significantly increased participants’ physical mobility, political participation, and access to
employment. The study found significant spillover effects on non-participants relative to women in
untreated districts.
JRM clearly noted the increase in the self-esteem and agency of sangha members. Across the states
JRM teams reported systematic approach to building women’s political knowledge, participation and
leadership. Political participation is high with all women actively participating in panchayat elections
and a large number of sangha women contesting and winning elections. The elected representatives
were trained and were reportedly working well, without the “sarpanch pati”. Sangha members reported
that they participated in gram sabhas.
8
Empowering Women through Education and Influence: An Evaluation of the Indian Mahila Samakhya Program;
IZA Discussion Paper No. 6347; February 2012
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MIS reports that about 50% of the sanghas have savings and credit activities (endline target 33.8%).
Livelihoods/enterprise support has the highest demand but is not a very strong component of the
program. Income generating programs across the states are old school, episodic and lack business
orientation. The increasing number of young girls and boys associated with the program want
employability training and/or livelihood support. MS thus needs to develop a clear perspective on
livelihood support and employability training for young people. The program could either provide
technical support and resources to the states or build institutional linkages with programs such as
Livelihood Mission, National Mission for Empowerment of Women and other similar state level
programs.
2. Costs and timescale
2.1 Is the project on-track against financial forecasts: Y/N
Yes, on-track.
2.2 Key cost drivers
The key cost drivers for the program are salaries/honorariums, travel costs, grants for sanghas and
federations, resource centres, workshops & seminars etc.
Management costs are approximately 35% of total costs. Of this, salaries and honorariums paid at
state and district level constitute 11%. Activity / Programme costs constitute the balance 65% and this
includes costs towards seminars, workshops, trainings, grants to NGOs/Federations/Institutes, block
level honorariums & travel expenses of Junior Resource Persons, Cluster Resource Persons and
Sahyoginies and expenditure of Mahila Sanghas and Mahila Shikshan Kendras. Of this, Salaries,
honorariums and travel expenses of block staff constitute almost 28%.
The GoI share of project costs is 10% and DFID contributes 90% of the total costs (Financial Aid
provides TA of £1m. This has been used to provide consultant support to the programme, for baseline
assessment, for evaluation of key programme components such as Mahila Shikshan Kendras and end
line assessment.
As per GoI sources, allocations for the programme under the 12th Five Year Plan ( 2012-2017) will
increase to Rs 400 crores (£50 m) from Rs 210 crores (£24m). This 81% increase compares better to
the 68% proposed increase in allocation for the education sector in the 12th plan.
2.3 Is the project on-track against original timescale: Y/N
Yes, the project is on-track.
3. Evidence and Evaluation
3.1 Assess any changes in evidence and implications for the project
No changes in evidence are noted and thus, no implications are qualified. Evidence is generated from
central and state government published data sources e.g. District Information System for Education
(DISE), National Sample Survey Organisation (NSSO), SEIMS and project management information
system.
MS was a pioneering program when it started and even today has some interesting innovations. It has
bypassed a generation of evidence about what works and doesn't in women's empowerment
programmes that could inform and influence multiple programs that target women. The independent
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assessment by University of Illinois, mentioned above, provides a strong evidence of impact of the
program, but is more of a on-off case. JRM’s very strong recommendation to invest in research and
evidence- building, was well received by NPO and it discussed preliminary ideas around VAW, adult
literacy, livelihoods and federation building that could be supported through the TA funds.
3.2 Where an evaluation is planned what progress has been made?
A baseline was conducted in 2007-8 and ToRs being developed for end line study and will commence
in October. Scoping Study on evaluation of Mahila Shiksha Kendra will be conducted in 9 states and is
likely to start in May 2013.
4. Risk
4.1 Output Risk Rating: Low/Medium/High
Low
4.2 Assessment of the risk level
Low
4.3 Risk of funds not being used as intended
The overall risk as per the Fiduciary Risk Assessment is assessed to be moderate. No significant
instances of corruption under the programme have been observed. Financial Management and
Procurement manual has been rolled out in all 10 states. Accounting is computerized and budget
utilization both at NPO and state levels has improved. Conduct of internal and external audit has been
streamlined. NPO follows up on audit observations.
There has been a marked improvement in the time taken to release funds over previous years. Rather
than receiving the first tranche of funds in September (as in the past), most states received funds in
June (with the exception of Karnataka, UP, Uttarakhand). The delay in a few states remain due to the
delays to prepare SSA plans that need to be approved for the MS funds to be released to the states.
4.4 Climate and Environment Risk
No present climate and environment risk identified from ongoing activities. MS does not have any
significant infrastructure component. It will improve general environmental awareness and is expected
to enable women to become more active in demanding services to improve environmental health, such
as drinking water through Rajiv Gandhi National Water Supply Mission (Swajaldhara) or toilets through
the Total Sanitation Campaign and UNICEF’s hygiene and sanitation campaign.
5. Value for Money
5.1 Performance on VfM measures
The programme has so far reached about 2 million women and girls. Overall expenditure incurred so
far is £26.2 million. This translates to a per person cost of is £2.38, lower than £3.50, last year Log
frame targets for no of sanghas and membership have been exceeded.
Additionally 185 Kasturba Gandhi Balika Vidyalayas (KGBVs), 5522 National Program for Education of
Girls at Elementary levels (NPEGEL) centres, 1377 early childcare and education centres, 150
Information Centres and 317 Herbal Medicine Centres are run by the MS programme.
Consultant support provided by DFID enables overall monitoring (including financial monitoring) that
has led to improved programme performance, funds release and budget utilization.
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Successive JRMs have reported that compensation and tenure terms of MS staff are not on par with
other national programme and this is leading to low motivation. This can potentially have an impact on
the overall effectiveness of MS staff. It needs urgent attention. As per GoI sources, revision of salaries
for staff at all levels is under active consideration.
District level federations are receiving direct grant in aid under the programme. The 4th JRM (2013)
has recommended a study to assess effectiveness and capabilities of federations in undertaking long
term sensitization initiatives.
5.2 Commercial Improvement and Value for Money
The programme is implemented by Ministry of Human Resource and Development using Government
systems and procedures. Financial Aid money is given on reimbursement basis bi-annually. Financial
and procurement manual has been finalised and disseminated to the states. Discretionary spending at
state and district levels is low or non-existing. Budgetary compliance is strictly followed and monitored
through systematic reporting. Threshold for procurement of goods and services under an approval by
Purchase Committee at District and State units is Rs.100,000 (about £1,250) and with the approval of
Executive Committee it is Rs. 500,000 (about £6,250). Procurement above these limits is required to
be done on the basis of a competitive process through an open tender system.
None of the states visited during JRM reported large or old outstanding advances or misappropriation
of funds. Accounts have been subjected to regular internal audit. Statutory audit is complete till 201112. One of the recommendations of the last JRM was to develop an effective system for tracking and
disposal of audit observations.
5.3 Role of project partners
Mahila Samakhya is a relatively small project in the overall activities of MHRD. Overall allocation for
MS is substantially enhanced in the XII plan (from £ 24m to £50 m). Once the DFIDI support ends, the
program will be brought under RTE-harmonise SSA with 100% internal funding. A National Resource
center with strong state/regional units would be set up to bring MS programme’s experiences and
insights to address gender barriers into the mainstream. The state offices do harbour some
apprehensions, mainly around maintaining autonomy. JRM recommended a working group to examine
the structural and organizational issues and to suggest checks and balances to protect the operational
autonomy of the programme..
Structures for implementation of the project are in place at National, State, District and Block levels.
The National Project Office provides technical support and advise to the state teams but needs to be
more proactive in building partnerships with government programs.
5.4 Does the project still represent Value for Money : Y/N
Yes
5.5 If not, what action will you take?
6. Conditionality
6.1 Update on specific conditions
None
7. Conclusions and actions
MS performed well last year and the JRM captured the achievements and challenges. DFIDI is in the
last year of its support to MS and would prioritise the following actions:
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Use the results from the Mahila Shikshan Kendras study to re-strategize, review the curriculum,
invest in training and material required for equivalency for higher grades.
Develop a comprehensive response to Violence Against Women
Build institutional partnerships with: a) key departments specially SSA, SWD and
NRLM/agriculture and b) research institutions
Conduct a comprehensive end line assessment
8. Review Process
Field Review and fourth Joint Review Mission was conducted by five representatives each from DFID
and Govt of India. The members visited states of Assam, Bihar, Jharkhand, Karnataka and
Uttarakhand and reviewed progress against the last JRM, results framework and the logframe. Project
scoring done by DFID.
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