Decentralised Planning
and Quality of Life in Rural Areas
Dr. K. K. Tripathy
There is a wide rural-urban divide in attaining progress on human development/ quality of life issues like
livelihoods, education and health.
T
he ultimate objectives of developmental
planning interventions are to ensure
improvement of quality of life and human
development. Since Independence India pursued
a planned development approach as a lever of her
social and economic change, thereby attempting to
actualize all-round development. The results of this
development strategy were mixed. The economy
grew persistently due to effective management
of various macro-economic fundamentals. Gross
Domestic Product (GDP) at factor cost (at 2004-
05 prices) grew from 2.3 percent in 1951-52 to
6.2 per cent in 2011-12. The compound annual
growth rate of GDP at factor cost, over the decade
ending 2012-13 was 7.9 per cent. However, the
iniquitous distribution of growth benefits among
the citizens placed India towards the bottom of
Kurukshetra October 2013
Human Development Index (HDI) map with an
overall global ranking of 134 out of 187 countries
as per Human Development Report (HDR) 2011.
Human Development/Quality of Life
Parameters :
While HDI estimates in terms of three basic
human capabilities to live long and healthy life,
to be educated and knowledgeable and to enjoy a
decent economic standard of living, quality of life
index explains several development dimensions
covering health, family life, community life,
material wellbeing, political stability and security,
job security, climate and geography, political
freedom and gender equality. Thus, while
economic growth brings economic prosperity by
enhancing percapita GDP, it cannot be an end in
11
11
itself. Higher standards of living backed by quality 9 per cent of the male workforce and 4 per cent of
of life calls for development opportunities for all the female workforce was regular wage/salaried
and should be the sole object of any development employees, whereas in urban areas 39 per cent of
policy. To ensure quality of life of the citizens of the the female workforce and 42 per cent of the male
country, our development policy should be such workforce was regular wage/salaried employees.
that regional, social and economic disparities are
Annual Status of Education Report
bridged; poor and marginalized are empowered
(ASER)2012 indicates that though enrolment in
socially, economically and politically; and all
schools are rising for children in the age group
development processes become participatory
of 6-14 years, there has been no major changes
and inclusive. Considering the importance of
in buildings, playgrounds or drinking water
inclusiveness of a development intervention and
availability in schools. This raises questions about
citizens quality of life, the draft Twelfth Plan (2012-
the quality of education infrastructure in the
17) has rightly aimed at faster, more inclusive and country. The survey also found out that declining
sustainable growth. teacher-classroom ratio, basic reading skills and
Rural-Urban Divide in Human Development: arithmetic levels and students attendance would
impact the quality of education and skill level of
Agriculture and its productivity grew the countrys future citizens. The quality issues
sluggishly during the period 1995-2005. Slow in education in Government-run and supported
growth in urban employment opportunities, educational institutions and rising enrolment in
especially for less skilled workers has somewhat private schools in rural areas may increase the
restricted rural-urban migration. cost of education at the cutting
Slow agriculture growth and edge level impacting the rural
while economic growth
saturated urban economy are brings economic prosperity quality of life.
more likely to cause rural-urban by enhancing percapita
differentials in poverty, inequality, The Eleventh Plan (2007-12)
GDP, it cannot be an advocated an inclusive approach
income and consumption. As per end in itself.
Tendulkar Report published by by encompassing equitable and
Planning Commission in 2009, comprehensive individual health
care, improved sanitation, clean drinking water,
rural poverty rate declined by 8.3 percentage
nutritious food, hygiene, good feeding practices and
points [from 50.1 per cent (1993-94) to 41.8
the development of delivery systems responsive
per cent (2004-05)] during 1993-94 and 2004-
to the needs of people. It defined measurable
05 whereas the urban poverty reduced by 6.1
monitorable targets on health parameters which,
percentage points [from 31.8 per cent (1993-94)
inter alia, included reduction in Infant Mortality
to 25.7 per cent (2004-05)] over the same period.
Rate (IMR) to 28 per 1000 live births, reduction
The recent estimates of Planning Commission
of Maternal Mortality Ratio (MMR) to 100 per
indicate that the rural and urban poverty rates
100,000 live births and reduction of Total Fertility
have declined to 33.8 per cent and 20.9 per cent,
Rate (TFR) to 2.1. As reported by Ministry of Health
respectively, in 2009-10.
and Family welfare, the crude birth rate declined
National Sample Survey Organisation in its by only 12.1 percentage points (from 33.9 per
66th Rounds of survey pointed out that the rural 1,000 population to 21.8 per 1,000 population)
and urban unemployment rates in 2009-10 were between 1981 and 2011 whereas/TFR declined
16 and 34 per 1,000, whereas the rural average from 4.5 in 1981 to 2.5 in 2011. There is a large
Monthly Percapita Consumption Expenditure rural-urban gap in IMR. While IMR for rural areas
(MPCE) (Rs. 1,054/-) was Rs. 940/- less than that in 2011 was 48 per 1,000 live births, Urban India
of the Urban MPCE (Rs. 1,984). Further, the survey reported IMR of 29 per 1,000 live births. Thus, a
found that in both rural and urban areas, the share shift in approach is required towards area-specific
of women in regular wage/salaried employees health interventions rather than universalization
was lower than that of males. In rural areas, nearly of programmes/schemes to achieve the desired

12
12 Kurukshetra October 2013
 goals. An independent mapping of health and Part IX of the constitution to consolidate plans
nutritional status at frequent intervals is the need prepared by panchayats and municipalities in
of the hour to identify localities within the states the district and to prepare a draft development
and districts with greater public health problems. plan for the district as a whole. Despite the
This would facilitate planning and execution of constitutional provisions made for decentralized
area-specific strategies. district level development planning, in most of
the States, DPCs are yet to come into existence.
Decentralized Development Planning: In States where DPCs are in place, plans prepared
The Evolution by district level departments are just endorsed
The First Plan (1951-56) advocated the without ensuring either decentralised character
constitution of district development councils in or cross-sectoral linkages. Thus, these plans
each district to prepare consolidated development are being prepared for implementation without
plans based on a participatory approach from much of citizen participation and involvement.
the village level upwards. In 1969, the Planning
Decentralized Planning & Quality of Life:
Commission issued the first-ever guidelines on
the preparation of district plans. From the First The basic purpose of the decentralized
Plan to the early years of the Eight Plan (1992-97), development planning is to identify local issues
centralization of development administration, for timely resolution, widen peoples choices
weak statistics relating to quality of life issues, and improve the wellbeing of the people. The
lack of capability in plan preparation at grass- participation of local people in framing and
root level, weak nature of local self-governance implementing multi-sectoral development
institutions, and implementation of a plethora of perspective/structure plans (long term plans
stand-alone centrally sponsored for 20-25 years), short-term
welfare schemes facilitated integrated plans and project/
vertical sector-specific planning The Eleventh Plan scheme specific plans is the idea
and led to the virtual collapse advocated the active behind enhancing quality of life
of decentralized planning involvement of elected local in rural areas through deepening
processes. government representatives democracy and promoting service
delivery efficiency in local areas.
The decentralized planning in planning, implementing
process was revamped through and supervising the public
73rd and 74th Constitution Decentralised Planning
service delivery at the local
Amendments. These Amendments requires collection and processing
mandated the establishment of a level to ensure that the
of data relating to various
three-tier Panchayati Raj System growth process is inclusive. development parameters and
at the district, intermediate and its analyses for priority setting
village levels and the establishment and its matching with available
of District Planning Committees (DPCs) for plan resources for implementation. For example, the
consolidation in the districts. The Eleventh Plan district level planning will analyse data and set
advocated the active involvement of elected priorities for intensive stakeholder consultations
local government representatives in planning, and negotiations to arrive at a balanced futuristic
implementing and supervising the public service vision of the community development. The
delivery at the local level to ensure that the growth consultation with the local inhabitants would
process is inclusive. Thus, to ensure effective local throw many feasible course of action to address
governance, the local self-governments are rightly local infrastructure development and human
put in the centre of location-specific development development issues covering health, education,
planning, implementation and monitoring. women and child welfare, social justice,
Article 243ZD of the Constitution mandated livelihoods, etc. This would also guide the local
the constitution of DPCs in areas covered by people to draw up health plan, drinking water

Kurukshetra October 2013 13

13
plan, education plan, agriculture plan, nutrition each sector, should be prepared on the basis of
plan, sanitation plan, etc. The DPCs need to the prevailing local conditions. Thereafter, the five
discuss the development strategie soutlined in year plan should be broken into annual plans for
the plan and direct implementation of appropriate effective implementation.
development intervention for ensuring quality of
life of the people.
Conclusion
Indias development planning approach has
Human Development Issues and Development aimed at ensuring improvement in the quality
Planning Process : of life of all her citizens from the First Plan.The
The Eleventh and Twelfth (Draft) Plans have planned approach to development has, however,
placed human development though participatory not been able to restrict inequitable distribution
planning at the centre of the district planning in the growth, income and wealth. There is a wide
process. The panchayats and municipalities are rural-urban divide in attaining progress on human
the core planning units, while the district plan is development/ quality of life issues like livelihoods,
the consolidation and integration of the plans of education and health. Further, Indiaslow ranking
these units. Thus, the districts should emphasise on HDI reminds us to have a relook at our
on participatory decentralized visioning for policies and implementation procedure towards
articulation of goals and outcomes on human enhancement the quality of life and well-being of
development, livelihoods and infrastructure in the millions of our citizens.
the district as a whole. The The 73rd and 74th
participatory visioning exercise The participation from Constitution Amendments have
should analyse livelihoods and various stakeholders viz. opened an opportunity before
outcomes, the potential and elected representatives us to ensure effective local
resources available at the local of three tier institutions, governance by decentralizing
levels as well as at the state and government officials, development administration,
national level. It must also focus academics, civil society improving capabilities of local
on capturing the core contents of organizations, citizens self-governments in plan
development and core contents concerned would ensure preparation, strengthening local
of backwardness as well as adequate level development statistics by
the aspirations of the people. pursuing a participatory and all-
The participation from various inclusive approach. The need of the hour is, thus,
stakeholders viz. elected representatives of three to ensure participation of various stakeholders viz.
tier institutions, government officials, academics, elected representatives of three tier institutions,
civil society organizations, citizens concerned government officials, academics, civil society
would ensure adequate steps for inclusion of organizations, citizens concerned to draw up a
human development and quality of life issues in complete development plan document clearly
the plan document. defining the steps to resolve various human
development and quality of life issues. Further,
The visioning exercise should be strongly
this decentralized development planning would
backed by a stock taking exercise at the district
not only identify local issues for timely resolution,
level to assess the human conditions and resource
widen peoples choices and improve the wellbeing
availability. After this visioning and stock
of the people but also enhance quality of life in
taking exercises are completed, the strategy for
rural areas through deepening democracy and
development of the district as a whole will have promoting service delivery efficiency in local
to be evolved and then the guidelines provided areas.
to PRIs and departments will be followed for
formulating the plans with due emphasis to quality [The author is a Director in the Ministry of
of life of citizens. The idea is to ensure that district Rural Development. Views are personal. E-mail:
five year plans, defining goals and strategies for tripathy123@rediffmail.com]

14
14 Kurukshetra October 2013