Future of SHG Federations

A few days ago, I read a blog post (Understanding Collective) and a working paper (The current and potential role of self-help group federations in India) on the SHGF (Self Help Group Federation).  I have the privilege of working with Chaitanya and the NRLM program for promoting community-based institutions.  I am sharing my insights from reading literature and working with SHGF. This was long overdue with the promise made to Dr. Sudha Kothari madam. 

A brief outline on SHGF before diagnosis: The role of SHGFs has varied by state, promoter organization as SHPIs (government, multilateral, or NGOs), and program maturity. SHGFs play diverse roles, their common goal is to strengthen SHGs, route the finance to SHGs, build their capacity and make them organisationally sustainable.  SHGF is usually set up in three tiers (SHG, village cluster, and federation). SHGFs engage in financial intermediation. SHGF acts as the host organization for the SHG in terms of channeling the grants/loans to the SHGs. SHGFs as an institution has significantly contributed to the leadership development & economic well-being among women members. 

As an observer, my view is that the SHGF movement has been going downhill in the last 10 years. Let me share the rationale behind the statement. 

1. SHG federations were a necessary measure during the late 90s and early 2000s. This was required because the SHG-bank linkage program by NABARD was in the early phase. The penetration of the commercial bank branches was low. Currently, India has the largest network of bank branches in the world, and most villages are within quite an easy distance of a branch. There has been a doubling of the branches per 100,000 adults in the last 10 years only. The figure below is a representation of access to banking services in the major economies with bigger geography:

Source: World Bank

2. The human resource at the SHGFs comprises a Manager, Accountant, and Field Representatives that are underskilled and underpaid. Hence, the attrition rate of trained staff is very high.  There is a minimum expenditure of INR 6-8 Lakh in managing SHGF assuming membership of 150-200 SHGs and outreach of 40-50 SHG by a field representative. The present scale of operations in the SHGF is not financially sustainable with an operating margin of 4-6% and a turnover less than INR 1 Crore. There are additional fees imposed such as one-time registration, annual membership fee, processing fee, service charge audit fee, and penalties imposed. Mandatory and voluntary savings compose a major part of the corpus generated internally but are not sufficient to increase the operating margins. New SHGFs raise credit from mature SHGF at an interest rate of 18% per annum hence further reducing the operating margin and increasing the cost of capital. Hence, SHGFs have still not achieved self-sufficiency. Most of the costs of the SHGFs are borne by the Self Help Promoting Institutes (SHPIs).

3. SHGs are always read to pay for financial audit and training fees from their corpus. SHGs get credit at an interest rate of 21% per annum from SHGF. Except for the loan service charges, credit linkages with the bank is a much cheaper source of credit for the SHGs. Other than that, few SHGFs ask for 5-10% of the security deposit as collateral with the federation. Hence, the variance of interest rate provides SHGs incentive to explore the cheaper source of finance. 

4a.  National Rural Livelihood Mission (NRLM) has been implemented by restructuring Swarnajayanti Gram Swarozgar Yojana (SGSY) effective from April 2013 in a mission mode. NRLM has emerged as the key element for delivering financial services to the poor in a sustainable manner and has witnessed phenomenal growth due to mainstreaming SHG Bank Linkage. Bank Mitras are delivering branchless banking services in Sub-Service Areas and reducing dependence on SHGF.

4b. Pradhan Mantri Jan-Dhan Yojana (PMJDY) is also known as the National Mission for Financial Inclusion, was launched in August 2014. Despite the 18-20 % dormancy rate in the savings account, the accounts are building a credit history for the customers. The implementation of Direct Benefit Transfer (DBT) in the social welfare scheme has further expanded banking services to the underserved population.

5. Promoting an SHGF is much more difficult and requires a much longer hand-holding period varying from 7-10 years (need evidence). Grants to SHPIs are given for building the institutional capacity but there is a dearth of grant support directly to SHGFs similar to the lines of Matching Equity Grant to FPOs.  

Source: NABARD SMFI 2019-20

6. SHG members look for a cheap and quick source of credit rather than investing time in their membership demands. The service time between loan demand application and loan sanction varies from 15-30 days for SHGFs hence they face intense competition from banks and MFIs in the fast loan delivery. SHGFs demand loyalty from SHGs for loan disbursement in face of competition from MFIs and Banks. Loyal customers are arguably the most important factor in repeat business and provide opportunities for more sales. But, this is very difficult to achieve in the plain vanilla loan product. 

7. A SHGF is a registered legal entity. They are registered as- 1. Trust Fund [Public Trusts Act, 1882 and Indian Trusts Act, 1920. Applicable in Maharashtra as Bombay Public Trusts Act, 1920], 2. Cooperative Body (Society): Societies Registration Act, 1860, and 3. Mutually Aided Society: Central Multi-state Co-operative Act, 1984. This was facilitated by SHPIs earlier due to low compliance orientation and ease of operation for the community institutions. Lower statutory compliances have created huge suspicion from commercial banks and created immense difficulty in raising capital from mainstream financial institutions. 

8. On one hand, MIS is a major concern in SHG federations while the recent developments in technology have transformed banking from the traditional brick-and-mortar infrastructure. Increased penetration of mobile phones, retail digital transactions, growing adult population in the country, entry of Payments and Small Finance Banks, and Fin-Tech players have changed the financial landscape. Over the last decade lower transaction costs, quick decision-making, customer orientation, and prompt provision of services have typically differentiated NBFCs from banks. This has been supplemented with a reduction in the cost of promoting new SHGs because of the pre-existing SHG ecosystem. With the emergence of digital banking, the financial market for the poor will evolve by the launch of innovative financial products even in the rural market. 

A CGAP study of 2011 has already estimated: SHG is not a good model for speedy disbursement of credit, but it is a good model for lowering the risks of borrowers as well as lenders. The SHG model, with lower interest rates and risk, is most appropriate to financially include the poor, while the product offered by for-profit MFIs is appropriate for the non-poor who need credit. 

Similar to the case, SHGs with good credit records will break away from SHGFs are freed from the traditional collective, and have started to reorient themselves in a new manner. As I have argued earlier in the future of the SHG movement: The affluent clients will drift towards JLG while the SHG movement will continue to reach out to vulnerable and marginalized people who own little or no land, are predominantly illiterate, and lack access to formal sources of financing.

What will happen to well-performing SHGFs? They can be transformed into Producer Organisations for providing various support services to primary producers. Various SHGFs are now exploring ways to make their way in entrepreneurship and reach markets. SHGFs can explore the banking correspondent model but recent pilots on using self-help group members as bank agents showed some encouraging results in terms of the number of transactions and the percentage of active accounts. SHGs will ride the wave of digital financial inclusion with investment in ensuring a smooth transition from manual to technological platforms. SHGs are already viewed by government agencies as the last-mile delivery vehicle. Matured SHGs will provide competition to SHGFs with volume and value growth to the financial products in the rural areas.

Markets are designed for an overall reduction in intermediaries. The emergence of financial intermediaries is seeing business opportunities in the vast untapped market and reducing the inefficient players. Any intermediary has to show that it serves a purpose and its value outweighs its cost. SHGFs will be supported by GoI, NABARD, and other donor agencies for last-mile outreach in the social schemes. Yet the future looks bleak for SHG Federation in the market!

The Future of Self-Help Groups

SHG Bank Linkage Model pioneered by NABARD served the dual purpose of financial inclusion as well as social empowerment for rural poor women from excluded communities. SHG program had shown to be successful in connecting both unserved as well as under-served customers with financial services.

In the changing financial landscapes, it's merely a question of time before the JLG movement overshadows the SHG movement. The data on regulated microfinance institutions (MFIs) that submitted their numbers to the Microfinance Institutions Network indicates that over the past year, loan portfolios grew by 84 percent and loan disbursements grew by 45 percent (Source). SHGs financed by the bank despite government schemes like NRLM became stagnant with the growth of the MFI sector. The data set (Source) shows a decline in SHG financed by banks post 2013 while the JLG movement is seeing tremendous growth.

JLG model has led to the establishment of a large microcredit sector in India post-2010. While SHG promoted by NGOs and government agencies are either small in numbers or with high default rates. The reason behind this can be explained through last-mile outreach, continuity in service, strategic approach of the movement, and market-led changes in the society.

Both SHGs and JLGs have distinct credit delivery models. The members are expected to visit the bank and make repayments on their own in the SHG model even when a visit to the bank branch leads to travel expenses and loss in daily wages for the client. SHGs have to manage the entire repayment collection process and maintaining records. This process is reversed in the JLG model practiced by MFIs with a door-to-door delivery solution of cash disbursement and repayment with proper records.

SHPIs (mostly NGOs) promote SHGs for deepening the impact of their programs and consolidating their own social agenda. Promoting agencies are solely dependent on the funding agencies and aid under any government schemes for the cost of formation. SHPIs typically have a mandate for capacity building through training, credit linkage of the SHGs to banks, and their monitoring role vis-a-vis the group discipline that is limited for the project duration. Hence, SHPIs were able to sustain regular and quality customer service to the women members during the project period only. Public sector and rural banks have been lending to SHGs only due to government-imposed, priority-sector lending quotas. Once the support from the SHPI ends, the bankers are a bit reluctant to provide financial support to SHGs due to fear of default. SHGs are also implementing vehicles for various welfare schemes in rural areas and get funds for it. But most SHGs are running on paper only. The validation and grading exercise to know the health of SHGs are avoided by both government machinery and NGOs as this can expose fraud at the ground level. This also led to decay in the quality and credibility of SHGs.

MFIs diversified the geography to cover for political risk post-Andhra crisis. The consolidation phase was achieved in the MFI market as the crisis has swept away small players and make investors cautious. But the value of acquiring customers went up due to the introduction of credit bureaus. The strategy adopted by MFI for acquiring new clients was based on low risk and high pace growth. They concentrated on the regions where the SHG program was implemented on a large scale with successful results. The new borrowers came by the restructuring of already existing JLG and SHG members. The incentives of a loan officer in MFI are based on loan disbursements and recoveries. As a result, they could form JLGs and disburse bigger ticket size loans if they include SHG members with inculcated good credit history in the JLG formation. Also, women preferred the JLG model due to the availability of credit in increasing amounts without any mandatory savings.

SHGs are gradually becoming the aggregate of individual actions and rarely work as collective action. The members of SHGs are more inclined towards starting an individual-based activity rather than collective-based activities. This behavior shows either SHG members have not much awareness about the benefits of coming together or don't have cohesion among them. A major role behind the screen was played by the external market-led economy having dynamic individualism and consumerism as its underlying themes. There is tremendous heterogeneity even among the poor SHG members based on parameters of aspirations and entrepreneurism. The break with tradition and affirmative action of state meant the break with established identity-giving authority. The new individuals, freed from the traditional collective, have started to reorient themselves in a new manner. In the booming economy, there are chances of class mobility for entrepreneurial households through remittances and migration. The lines of class division are crossed now more frequently,  the collective identities based on class or caste association are loosening up and leading to ineffective collective action. Hence, theories of collective action are not working as effective now in the rural ecosystem,

This concludes the brief summary of the emerging debate. The popularity of the JLG has eclipsed SHG but its current clients will be shifting to Small Finance Banks to avail savings, credit, and other full range of financial services. The affluent clients will drift towards JLG while the SHG movement will continue to reach out to vulnerable and marginalized people who own little or no land, are predominantly illiterate, and lack access to formal sources of financing.

Riddle of SHG Movement

Why SHG movement failed in *North-East India but successful in Kerala ? Kerala and North East are both quite high in literacy rate and women dominated society.  Even recently Tripura has become the most literate state in the country overtaking Kerala. This question was asked by a government officer in Ganjam district where I was deputed in my stint at Odisha Livelihood Mission.  The argument seems valid but I had three reasons for the failure now.

1. These are matrilineal societies, not matriarchal ones. Matriarchy is not just about descent and inheritance being traced through the female line. The matriarchal system means a system where women have power in “all activities relating to allocation, exchange and production, as well as socio-cultural and political power." When descent and inheritance are traced through women it’s called a matrilineal system. Matrilineality is only a sub-system of matriarchy and the power in the social power structure remain in the hands of male only. Traditionally, it was communities like the Nairs, Ezhavas and Warriers in Kerala & it’s the the Khasi, Jaintias and Garo tribes (majority of the population of Meghalaya) who practice or used to practice this system. For more about women in North East, please read Status of Women: North Eastern Region of India versus India by Dr Ira Das

2. Population Density is the biggest difference between them. Kerala is home to 2.76% of India's population; with a density of 859 persons per square km, its land is nearly three times as densely settled as the Indian national average of 370 persons per square km. [Reference] This is the major reason as sparse population in the hilly region create a high operational cost and challenges in the last mile connectivity in North-east India.

3. Lack of penetration of financial services is the major reason behind failure of SHG drive. There are only 2.3 per cent of total account in Northeast India.while the maximum no of 27.44 per cent of total account in South India. Read more Financial Inclusion in India:A Brief Focus on Northeast India. Stronger presence of MFIs in the Assam and Tripura helped reduce the disparity but there is a long way to go.

4. In a region ravaged by conflict, business as usual is no longer an option. The political risk due to constant terrorist and insurgent activities with AFSPA have also led as a major hindrance for investment in infrastructure. There has been chaotic process of creating a peaceful state, an economy and a workable political settlement from the violent, corrupt, and poverty-ridden area shows the development process in all of its historical reality.

The picture with inclusion in the development emerges is of increasingly nuanced collaborations and partnerships: business-state, business-society, and between formal and informal business. The promise of financial inclusion in India has been for long time but has never materialised.The Reserve Bank of India is navigating the path to financial inclusion by means of regulations and guidance. RGVN (North East) Microfinance Limited, the only micro-finance company from the region to be selected by the RBI to set up a small bank. The development of financial services will also be a source of growth in North East in the future.

*The Northeast India comprises of contiguous eight states of Arunachal Pradesh, Assam, Nagaland, Manipur, Meghalaya, Mizoram, Tripura and Sikkim - is geographically, ethnically and culturally different from the rest of the country.

Drudgery Reduction for Women

It is time to invest in agriculture, rural development and food security. That's where the future of India lies.There is lot of women's participation in agriculture and allied activities in addition to the household work. Manually women were not able to increase the productivity and some of the health problem occurs. Simple Machine and tools like Coconut peeler, fishinh net, sugarcane stripper always act in drudgery reducing technologies and help to reduce the incidence of the health issues.

Odisha government launched an innovative scheme, “Women SHGs for Drudgery Reduction". The vision behind is to make a positive impact on the health of women folk of the state by reducing their physical exertion. As per the scheme, each SHG would get Rs. 10,000 as financial assistance through which they can buy different types of technical equipments and enhance their productivity. Mahila Vikas Samabaya Nigam, the Women’s Development Corporation, was established as the Nodal Agency for implementing Schemes and Programmes for the welfare, development and empowerment of women.

There was planned disbursement of funds to SHG accounts in e-transfer mode. The project involved District level committee entrusted with the responsibility of transparent selection of SHGs and identifying the main activities that are undertaken in the district. Priority was given to SHGs with SC/ST/PWD/BPL families. Monitoring and random field verification was the guideline provided by the government for the proper implementation. On receipt of funds, SHG members will procure in a transparent involved in at the lowest possible market price.

Physical Target for DRDA was nearly 245 SHGs while financial was 232.75 Lakh in Ganjam district. Manual operated Pulse Thresher, Manual Weeder, Smokeless cook stoves and Paddy Ripping Sickle were the main procured items. This scheme must be evolved for workers involved in MSME. There is a cashew processing cluster employing mostly women in Ganjam district along coastal belt. Workers require gloves but the employers are apprehensive that output would reduce if gloves are used. Small machines enhance the efficiency of their work of shelling, peeling, and grading.

This is one of the better scheme launched by the government. Such initiative will help in increasing production and productivity besides reducing drudgery of labour associated with farm activities. Only time and project management can give us the result of this scheme. But there has been no baseline study before implementation of this scheme. Hence, questions such as - " Has drudgery / no of hours of work/ been reduced by technological improvements?" will remain unanswered. I saw this scheme as an extension of Conditional Cash Transfer(CCT). There is a good article on cash transfers at World Bank blog. Please read Cash Transfers: Sorting Through the Hype.

Indian Government had started the ambitious direct benefit transfer (DBT) scheme on January 1, 2013. Direct Cash Transfer can work wonders when the beneficiary is identified correctly. Who are these beneficiaries and how to identify them ? A pretty useless and a stupid question to ask if it was pertaining to India. Identification is not a statistical exercise, but is a major political activity at ground level. Hence, even with either conditional or unconditional cash transfer, nothing can work with money going through non existing beneficiaries into corrupt bureaucracy and political leaders. Cash in the hands of sensible people does more than in the hands of corrupt state or senseless aid agencies;

SHG Bank Linkage

There is a lot of talk about inclusive growth through financial inclusion. The competition between banks has never brought credit to the poor; it only took new financial products to richer people. RBI policy has forced banks for priority sector lending and the opening of branches in rural areas. SHG Bank linkage model was developed by NABARD under the strategy to reach the poor in a sustainable way. I have written on this issue in a previous post.

SHGs are linked to the formal banking system or microfinance institutions for accessing credit. Self-help groups minimize the bank's transaction costs and generate an attractive volume of deposits. While bankers have to handle only a single SHG account instead of a large number of small-sized individual accounts, borrowers as part of an SHG cut down expenses on travel (to & from the branch and other places) for completing paperwork and on the loss of workdays in canvassing for loans. There are many practical issues in this scheme faced by all three stakeholders: SHG, Banks, and Government.

Bank readily opens the account of SHG but treats them as an extra workload on the employees. One major reason cited for this is the staff shortage at the bank level as well as liquidity crunch at rural branches, leading to delays in cash transfers to SHGs. Transaction time and Cheque clearance time at RRB can be very long. Any new and non-routine applications of SHG bank account take a lot of time but the returns in the Bank portfolio are abysmally low. There have been cases where the account holder has to run repeatedly to withdraw money from her SHGs bank account!

An SHG decides to seek a loan from the bank. SHG submits the application that takes into account the activity proposed, the amount of loan required, duration of loan requirement, the purpose of the loan, and the number of installments in which the loan can be repaid. The procedural issue is that the field officer from the bank needs to check the existence, record books, and proper functioning of the SHG. This poses the problem where the field officer is often overburdened with a large amount of work. Even interaction of bank officials is limited to President and Secretary of the group hence decision-making process often escapes the rest of the members.

There is a huge rise in NPAs (non-performing assets) to poorer supervision of loans. RRBs are doing the worst in all the banks. The task of recovering money from the people is politically volatile. Hence, Banks try to even deny the loan services to the SHGs for the most arbitrary of reasons. Banks can't randomly choose genuine groups among the hundreds of the SHGs. The discrepancy in the paperwork is given reason and SHG members have to approach the bank repeatedly.

Even lending norms for SHGs are suited to poor members of SHGs. There are many issues even in this arrangement like poor members taking the loan and being used by other prosperous members. This practice is equivalent to a ghost loan. This actually prevents credit risk, but the purpose of solving poverty is lost as the actual borrowing member will not be using it. Another member using the loan may not give priority for repayment as the loan is not in their name and the group became defunct.

Political desire triumph over economic reality - That is the summary of my experience in the field of SHG loan recovery. The loan waiver scheme had become a major deterrent in repayment of any type of bank loan in Odisha. The loan waiver scheme has disincentivized those SHGs who repay on time. Such type of Government intervention changes the behavior of both rural and urban populations. Giving people (APL or BPL) handouts with no strings attached is not a panacea. Such freebies' offerings destroy the Micro-credit institution, especially in rural areas. It can be easily concluded that state aid almost always brings in its wake political favoritism and corruption.

The role of government is not only limited to loan recovery. There are targets of SHG's linkage for each public sector bank by State Level Bankers Committee (SLBC) and Panchayati Raj Department, resulting in the supply-driven approach of pushing external loans on SHGs. The amount and timing of such loans must depend on member capacities and merely the fact of repayment of a previous loan (a weak but essential indicator of future credit absorption capacity). The whole SHG Bank scheme of demand-driven credit availability becomes converted into a credit distribution exercise.

Public sector banks have been able to grow despite offering poorer customer service by simply expanding their reach. When a private bank sees a loan turning doubtful, it is able to quickly exit, even if needed by taking a haircut. Public sector banks need to engage with either NGOs or any agency that can build the capacity of SHGs. The mismatch between the expectations of the poor and the capabilities of the formal banking system still today needs to be minimized. Till then, Banker' relation with the Government and SHGs will always be strained.

Micro Investment Plan (MIP) of SHG

The international standard for the definition of the poor i.e. a household that spends more than one-third of its income on food is followed in India, 95 percent of all households would be considered poor. Every country needs an inclusive political and economic institution to break out the cycle of poverty. The delivery of financial services at an affordable cost to the vast sections of extremely poor and vulnerable groups of people is a necessity for the development of India.

Plans are useless, but planning is indispensable. — Dwight D. Eisenhower

Budgets help to determine how much money one has, where to invest it, and whether one can achieve your financial goals. A budget is a forecast of all cash sources and expenditures. MIP is a tool for financial planning that can be used for both SHG and its members. Socio-Economic Analysis of each SHG is performed as risk is involved in giving loans without any collateral. The format used in TRIPTI can be downloaded here.

Indicative Components/ Seven Steps for preparing a Micro Investment Plan (MIP) :

Step 1-SHG Details Format

Step 2-Members’ socio-economic details Format

Step 3-Income and expenditure statement of members Format

Step 4-Listing of Household Investment Plans (for economic, social, and household needs) Format

Step 5-Prioritization of Members Format

Step 6-Financing and Rotation Plan Format

Step 7-Terms of Partnership Format

MIPs are promoted under National Rural Livelihood Mission as it helps in better planning to avoid bad loans on behalf of the banks. Micro Investment Plan is prepared with the initiatives of Community Resource Person Strategy in the Project. MIP is used for SHG members where many factors like a priority, wealth ranking, Investment in the activity proposed, Loan Amount, Life of Asset, Monthly Incremental Income, Saving Capacity of Household, Installment Amount, No. of Monthly Installment and other entitlements (PDS, Insurance, Pensions, etc) are considered. MIP includes plans for investment on asset creation for income generation and household needs investments. MIP is assessed at a Household-level where assets, liabilities, risks, vulnerabilities, entitlements, and other expenses are noted down in the detail.

But such detail exercise exists only in theory. Most of the MIP forms had not been filed properly. Activity proposed, No. of installation, Payback amount, and signature of President & Secretary is the main focus of Banks. The low-income who have been excluded from the financial services of formal institutions lacks financial literacy in most cases. Financial literacy for poor villagers is really important but it doesn't mean training by government officials once in a blue moon. There is always a need for the Livelihood mission/MFI/NGO to reach and build the capacity of SHG members. People need awareness about financial products, fraud activities, or else they are misleading and fall to misdeeds of chit fund companies promising high returns; This often ends up losing the lifetime savings.

Let us see a practical example of credit linkage. An SHG demanded nearly 1 Lakh as per their MIP and each member of the SHG deliberately had put Rs 10,000 as the investment capital for the proposed activity. Rs 50000 from the GPLF (Gram Panchayat level Federation of SHG under Livelihood Mission) at a nominal interest rate of 7% was given as a loan to SHG. Group divided this money among themselves equally (Rs. 5000) per member. The amount according to their need(proposed activity) will always differ from each member but fairness is maintained through this equal division. Only internal loaning is done among members on the basis of priority. In the case of external loans/grants, this fairness in distribution is always maintained by SHG. So, Priority in lending is a nice theoretical concept. How do a rural manager can change 20 years of what the common wisdom has taught them?

Validation and Grading of SHGs

SHGs were formed under Mission Shakti in Odisha. Odisha government started a validation and grading exercise to know SHG status in December 2012. The validation process aimed at confirming the existing status of SHGs, whereas the Gradation Process assessed their eligibility for receiving Revolving Funds.

Validation

In an ideal world, the Branch Manager/ Representative of the Bank, B.D.O/Representative from the block, and C.D.P.O/Representative from ICDS should visit the field and complete the process. This may take from 5-10 days depending on the size of the district. This doesn't happen in the real world where AWW sits with the President/Secretary of SHG for the complete assessment.

DRDA and ICDS Balangir have a record of 11097 SHG existing in the district but validation led to only 7846 functioning groups. Hence, we can easily imagine with these figures, the difference between SHGs claimed and existing can run in lakhs. Defunct and far SHGs form a major part of the numbers claimed by the government.

Grading

Grade I and II with A, B, and C as three categories of the SHG was the grading format. The format with various criteria is uploaded on Scribd. SHGs having 70% BPL members and passed the Grade-I test and categorized as “A” or “B” i.e. Scoring more than 60% marks during Grading will only be eligible for Revolving Fund in order of merit as per their scores. The Graded SHGs are assisted under NRLM, as this fund will aim to address the immediate production and consumption needs of members of the SHGs as well as encourage internal lending practices among the members.

In the intensive Block under NRLM, Revolving Fund(RF) of 10,000 or 15,000 depending on whether they had already received any prior assistance under any other government scheme. The SHGs who have qualified grade I test but have not availed of any financial assistance will be provided with a revolving fund of ₹.15,000/- in two tranches. In the first tranche ₹.5000/- will be provided and on successful utilization of this amount ₹.10,000/- will be provided to the group directly in 2nd tranche at least after 3 months of receiving 1st tranche. This fund will become a part of their group corpus. The group members can borrow from the group corpus to meet their various needs as decided in the group. However, the groups who have already availed of such financial assistance under Mission Shakti or any Govt. program will not be eligible for 1st tranche and receive only 10,000. I insisted on attaching Xerox copies of my BPL card and Bank Passbook SHG while working at Bhanjanagar block in Ganjam district. Hence, it created transparency and gave validity to the no. of BPL members by any SHG.

Conclusion

RF/PPIF is distributed in a campaigning mela organized at each block to sensitize the groups about NRLM. Generally, it is more show of the good work done by the government. In an ideal world, SHG assessment (or rating) should not just be limited to current performance but could also assess credit absorption and repayment capacity. That requires qualitative information to look for problems faced by each group. It is assumed by the government that the SHGs that are found ineligible would be provided hand-holding support, to improve their credibility for future assistance. However, there was no staff at the field level to do this tedious job. Record keeping at the group level has emerged as a very weak aspect of SHG functioning.

The main problem is that we don't have data on the Life cycle of a SHG. We are unable to understand how many groups are defunct or discontinued so we don’t know the mortality rate of the group. So, the government has no answer to these two questions: What groups work, and what works with groups?

SHG Model and Financial Inclusion

SHG Model in India : “The tipping point is that magic moment when an idea, trend, or social behavior crosses a threshold, tips, and spreads like wildfire.” ~ Malcolm Gladwell.

This statement might have been just said on SHG (Self Help Group) movement in India. The rural landscape of India has mushrooming with SHGs. Formal credit system has, over the years failed to deliver in rural India. The transaction costs of the rural credit systems are very high and the system is plagued by non-performing assets. SHG were started as a pilot project of 500 SHGs, by Nabard in 1992, they grew slowly. SHG  are viewed today as an entry point in rural landscape for NGO, Bankers, government and even MNCs.

Self Help Groups (SHGs) are informal associations of up to 20 women (their average size is 14) who meet regularly, usually once a month, to save small amounts (typically Rs 10 to 50) a month. Majority of SHGs are single-caste groups based on basis of neighbourhood and affinity groups concept. Prof. Malcolm Harper notes three aspects with regard to using SHG groups  [Source]:

1) Groups take time, lots of it, and we have always said that poor women are very busy.
2) Groups tend to exclude individualist (sometimes they are called as entrepreneurs) who dare to be different, to do mad things like starting new types of businesses, which may even create jobs for others.
3) Men are generally bad at working in groups, and they take bigger risk and are less reliable than women, but when they do succeed they tend to create more jobs than women do, for the vast majority who prefer to employed than to be self-employed.'

Financial Inclusion (FI) in India [Source] -  Typically speaking, the scope of financial inclusion (FI) in India involves the following and related services (not exhaustive):

Access to accounts: a) Savings (No frills etc); and b) Current accounts.

Access to deposits: a) Fixed deposits; and b) Recurring deposits

Access to transaction banking: a) Use of cheques, demand drafts and other such instruments; b) Receiving of social security (NREGA and other) payments through bank accounts; c) Transfer of money through RTGS or NEFT and remittance services; d) Debit cards and ATM usage; e) Credit cards including KCC and GCC; f) Bill payments through technology banking - mobile banking, internet banking etc

Access to credit facilities: a) Typical priority sector loans for agriculture and allied areas etc; b) Post harvest, post production loans; c) Loans for marketing of agricultural and other produce etc; d) Traditional working capital limits; e) Traditional MFI loans under priority sector; f) Traditional SHG bank linkage program loans; g) Loans from specialised credit and other cooperatives; h) Traditional MSME loans backed by credit guarantee from Government of India; i) Housing/mortgage loans; and j) Various kinds of overdraft facilities and so on;

Access to risk management services: a) Life insurance; b) Health insurance; c) Asset insurance; d) Crop and weather insurance; e) Livestock insurance; f) Other such products such as credit insurance; and g) Micro-pensions

Access to other Services: a) Deposit insurance; b) business facilitators (BF) and business correspondents (BC); c) financial literacy services and credit counseling (FLCC) centers; d) grievance redressal, ombudsman and legal aid services; e) credit bureau; and f) Other services

The above services can be acquired through various institutions such as (but not limited to) the following: Commercial Banks, Regional Rural Banks (RRBs), Cooperative Banks, Local Area Banks (LABs), Post Offices, State Cooperatives, Mutually Aided Cooperatives, Multi-State Cooperatives, Investment Grade NBFCs, NBFC MFIs, BCs/BFs, Other MFIs, SHGs and so on.

SHG Model and Financial Inclusion in India

Government has been pushing banks to step up their financial inclusion (FI). Most of the financial inclusion has been limited to opening of No-Frill Accounts. Due to lack of financial literacy, program is not achieving the vision. Banks are fulfilling targets through intermediaries such as business correspondents (BCs). The limited amount of the BC works revolves around disbursement of government funds, small-value credit; recovery of principal / collection of interest; collection of small-value deposits and sale of micro insurance. Facilitating access to microfinance through SHG-supported bank linkages is one of the most critical aspects of our Financial Inclusion program. More on SHG Bank Linkages will be coming on the blog pretty soon.

e-NRLM

It is very essential for monitoring and evaluation to have solid data. There are thousands of functioning SHGs in the country. NRLM has taken step for transparency through data collection about SHG. MIS of NRLM is hugely important for tracking effectiveness of programs that would serve in a long way to establishing accountability at each level.

ICDS is already working with SHG movement in Odisha with Mission Shakti since 2003. Through validation and gradation of SHG in December 2012, Panchayati Raj Department was able to verify total number of SHG in the Odisha. Still, there was no concrete record of name of all SHG members. Name of President and Secretary can only be obtained through all given data. I formed a template as required for MIS and termed this E-NRLM format. Our OLM team at Bhanjanagar and Surada block of Ganjam district used Aagan Wadi Workers (AWWs) for collecting data about SHG.

Data collection exercise is a tough thing in India. Education of the most of the AWWs varies mostly from class 7-12 range. They are overloaded with core responsibilities and other auxiliary works. Other hurdles in data capture is Demand of Information in English Language. This is a huge problem at all India level as the necessary level of English is not achieved by  AWWs, GRS or any other extension staff. If we collect data in the regional language, it will be very tough for translating them in English for data operator sitting at block level. One more precaution should be taken while collecting data at rural level. Agriculture season shouldn't be selected for the exercise as women members are busy in all activities. That will add burden to AWWs and make process more tedious.

Gathered information is static in nature. We need to re-validate all old SHGs each year for any change in members, amount of savings and bank linkage history. There is need to colled basic information also need about new SHGs formed each year. There will be upcoming need to update BPL(Below Poverty Line) data related to SHGs in near future. Currently, 1997 BPL census data is used in Odisha for any scheme. 2011 BPL data will be soon made public and must be incorporated soon.  Why this is important ? Each government schemes has guidelines to select beneficiary mostly on the basis of either SC/ST or BPL card per household. Hence, a more transparent way will emerge with the help of this MIS.With each opening of bank branches (public and private) in the locality, they should be readily integrated in MIS data.

In a review meeting, we were battered by a senior officer for not taking ownership of the mission in data collection exercise. This task was not possible without having a single field staff dedicated for NRLM at our disposal till December 2013. And, nobody remembers all big talks of convergence of various government agencies! I was working at Balangir district where few villages/GPs name were missing from MIS. We readily took help from MGNREGS MIS software. Now, that is a fine example of convergence. We are collecting BPL card number instead of just writing yes or no in BPL column for e-nrlm. That is ensuring much transparency in the system. It is plan to do this data collection exercise each year conjoint with re-assessment schedule of all SHG. That will ensure much light on proper SHG health.

Social investment is not being done just be formation of SHG and quality is not being maintained as government is only chasing numbers. Our huge ignorance of how good or bad SHG works is barrier to their development. MIS is a tool that will be give quantitative answers. There is still need of huge qualitative data to explain the numbers. NRLM need rigorous and reliable information of impact assessment studies, social audit, panel studies etc. Open data-Base is a new kind of 'public good' that can be generated through this mission. With this huge amount of publicly available data disseminated to policymakers, industry, bankers, researchers, Academia, students and others can give more understanding social reality.

SHG Model under TRIPTI Scheme - 2

SITUATIONAL ANALYSIS:- The social inclusion process will include two steps; first to identify the left out poor, those who are not a part of any SHG/ other CBOs, and second to ensure their participation in different community-based organizations [SHGs, GPLF, etc.] at the village/ Gram Panchayat level. In this process, the project also needs to identify the extremely poor and vulnerable groups (EPVG) in the community that typically suffer from severe economic and social impediments.

For this purpose, the project adopted a community-based participatory approach to identify and prioritize project beneficiaries, including ‘extreme poor and vulnerable groups, persons with disabilities, and the ‘left out poor’. The proposed methodology for the same is called situational Analysis in the project which will comprise of the following exercises:

1- Participatory identification of Poor(PIP):

o Social mapping/ collection of baseline of beneficiaries

o Well Being Grouping

2- SHG Grading

3- Institution Mapping

4- Livelihood mapping

FUNDS:- For operational sustainability of the GPLF, it needs different kinds of funds like the start-up fund, Institution Building (IB) fund, and Community Investment Fund (CIF). Start-up funds and IB funds are basically meant for office establishment and capacity-building activity. The Community Investment Fund (CIF) acts as a catalyst to help poor households meet their demand for improved access to credit for investment needs. The Community Investment Fund will be an infusion from the TRIPTI Project to the Gram Panchayat Level Federation (GPLF) down to the members and is expected to revolve among SHG members for taking loans and repay loans from this fund.

The SHG may provide loans for individual-based livelihoods preferably for reducing vulnerabilities and shocks, income-generating activities, meeting social needs, and supporting investments in housing, education, etc. based on the priorities fixed by the communities in their Micro Investment Plans (MIP). Member borrows from its SHG for implementing Household Investment Plan and repays the loan amount in full with agreed terms and conditions. The amount of loan received as CIF will be first available to the neediest and vulnerable. On repayment and accumulation of group funds, the other ranked members will avail funds from the group. The other sources of funding MIP are SHG’s own funds and bank finance.

Pro-Poor Inclusion Fund (PPIF) is a part of the Community Investment Fund (CIF) which will focus on activities aimed at identifying the extremely poor and vulnerable groups (EPVG) and enhancing their productive capacity. The fund size of PPIF is Rs 5000/- per eligible SHG.

Panchasutra- SHGs were well aware of the Panchasutra are the five principles of maintaining an SHG and includes: 

• Regular Meeting

• Regular Saving

• Bookkeeping

• Timely Repayment

• Internal Lending

SHG Model under TRIPTI Scheme - 1

Targeted Rural Initiatives for Poverty Termination & Infrastructure (TRIPTI) aims at enhancing the socio-economic status of the poor, especially women and disadvantaged groups, in ten districts of Orissa over a period of five years, beginning 10 February 2009. The project is assisted by the International Development Agency of the World Bank and implemented by Orissa Poverty Reduction Mission, a society under the Panchayati Raj Department of Government of Orissa. TRIPTI project under World Bank Assistance is running in 38 blocks in 10 districts that will be treated as pilot blocks for NRLM.

The SHGs are at the first tier of the community institution structure. One SHG is formed constituting 10-20 women members (in case of disability or dispersed location the group size may be 5 to 20). The second tier of the structure is called Cluster Level Forum (CLF) which is an aggregation of 5 to 15 SHGs at the village/hamlet level. GPLF is the third tier of SHGs which is formed taking representation from all CLFs at the GP level.

I have the privilege of working closely with TRIPTI block level team and SHG Federation at Kharidpipal GP for 21 days in Balasore. Bhograi is one of the blocks in Balasore that falls under the TRIPTI project. It consists of 32 Gram Panchayats out of which I was placed at Kharidpipal. Kharidpipal GP consists of eight villages. The GPLF federation of SHG is constituted of 13 CLF and 152 SHG. The detail of the structure is given in the diagram. That gave me a decent understanding of the SHG model that will be implemented in NRLM scheme with a slight tweak. I will draw the conclusion that the creation of dedicated machinery (staff support) &  Universalisation of SHGs has made it more sustainable than SGSY.

Looking on the data of Annual Exp of Average Poor – Rs.40-60K; 35-55% Food; 10-30% Health; 15-20% Education; 10-20% C&E (MGNREGS 2011). Most of the schemes related to the poor fail because the poor spend their money on urgent needs such as health rather than asset building. It is not only economic poverty but lack of financial planning that also plays a crucial aspect. Hence, TRIPTI focuses on the Micro Investment Plan (MIP) which is a household investment plan prepared by individual households and their consolidation at the SHG level.

MIP has socio-economic information will include critical factors such as income, assets and liabilities, needs and problems, number of earners and dependents, single woman, physical/mental disability amongst the members in their family if any, health problems, livelihoods and opportunities, skills, saving capacity, social backwardness, literacy, etc. It will look for the income and expenditure statement of members. The SHG at the outset ranks its members according to their wealth. The Self Help Groups will then be facilitated to prepare a list of all SHG members along with their loan requests indicating both activity/purpose and loan amount. The group would appraise each loan request and determine the loan terms like the amount of loan, installment amount, repayment period, etc. Here, the group would take into consideration the potential for chosen activity in the local area and the competence of the members to carry out the same gainfully.